WEN Petition for Judicial Review SEPT 18 FINAL

7/29/2019 WEN Petition for Judicial Review SEPT 18 FINAL

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No._________________ VancouverRegistry

INTHESUPREMECOURTOFBRITISHCOLUMBIA

BETWEEN: WENRESIDENTSSOCIETYPETITIONER

AND:

CITYOFVANCOUVERRESPONDENT

PETITIONTOTHECOURT

ONNOTICETO:CityofVancouverLegalServices453W.12thAvenueVancouver,B.C.V5Y1V4Thisproceedinghasbeenstartedbythepetitioner(s)forthereliefsetoutinPart1below.

Ifyouintendtorespondtothispetition,youoryourlawyermust

(a)filearesponsetopetitioninForm67intheabove-namedregistryofthiscourtwithinthetimeforresponsetopetitiondescribedbelow,and

(b)serveonthepetitioner(s)

(i)2copiesofthefiledresponsetopetition,and

(ii)2copiesofeachfiledaffidavitonwhichyouintendtorelyatthehearing.

Orders,includingordersgrantingthereliefclaimed,maybemadeagainstyou,withoutanyfurthernoticetoyou,ifyoufailtofiletheresponsetopetitionwithinthetimefor

response.

Timeforresponsetopetition

Aresponsetopetitionmustbefiledandservedonthepetitioner(s),

(a)ifyouwereservedwiththepetitionanywhereinCanada,within21daysafterthatservice,

(b)ifyouwereservedwiththepetitionanywhereintheUnitedStatesofAmerica,within


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35daysafterthatservice,

(c)ifyouwereservedwiththepetitionanywhereelse,within49daysafterthatservice,or

(d)ifthetimeforresponsehasbeensetbyorderofthecourt,withinthattime.

(1) Theaddressoftheregistryis:

TheLawCourts800SmitheStreetVancouver,B.C.V6Z2E1

(2) TheADDRESSFORSERVICEofthepetitioneris:c/oBaker&Baker,1708-808NelsonStreet,Vancouver,BCV6Z2H2Faxnumberaddressforservice(ifany)ofthepetitioner:NONE

E-mailaddressforservice(ifany)ofthepetitioner:[email protected]

(3) Thenameandofficeaddressofthepetitionerslawyeris:NathalieBaker,Baker&Baker,1708-808NelsonStreet,VancouverBCV6Z2H2

ClaimofthePetitionerPart1:ORDERSSOUGHT

Thepetitionerappliesforthefollowingorders:

1. AdeclarationthatSection3.1ofVancouverBylawNo.9755,ABy-lawtoimposedevelopmentcostleviesinthegeneralareaofthecity(BylawNo.9755)isultraviressection523D(10.5)oftheVancouverCharter,S.B.C.1953,c.55;

2. AdeclarationthatSection3.1ofAreaSpecificDevelopmentCostLevyBy-lawNo.9418(BylawNo.9418)isultraviressection523D(10.5)oftheVancouverCharter,S.B.C.1953,c.55;

3. Anorderquashings.3.1ofBylawNo.9755andBylawNo.9418;4. Coststothepetitioner;5. SuchotherorderasthisHonourableCourtdeemsjust.

Part2:FACTUALBASIS

1. Thepetitioner,theWENResidentsSociety(hereinafterreferredtoasWEN),isanon-profitsocietyincorporatedundertheSocietyAct,R.S.B.C.1996,c.433andhasitsheadofficeat60-1386NicolaStreet,Vancouver,BritishColumbia,V6G2G2.


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2. Therespondent,theCityofVancouver(theCity),isamunicipalityincorporatedpursuanttotheVancouverCharter,S.B.C.1953,c.55asamended,withabusinessaddressof453West12thAvenue,Vancouver,BritishColumbia,V5Y1V4.

3. WENisanon-profitsocietyconsistingofvolunteersresidingintheWestEndneighbourhoodofVancouver,whichislocatedWestofDowntownandboundedbyEnglishBay,CoalHarbour,andStanleyPark(theWestEnd).

4. WENsConstitutionsetsoutitspurposeasfollows:TheWestEndNeighboursisanon-profitcoalitionofvolunteerswhorecognizetheuniquecharacteroftheircommunityandstrivetomaintainthecoreassetsand

relationshipswithintheneighbourhood.

5. WENwasformedin2010andsincethattimeithasstrivedto:(a)preservethequalityoflifeofWestEndresidents;(b)preservetheuniqueanddistinctivecharacterandheritageoftheWestEnd;and(c)ensurethattherespondentslandusedecisionsanddecision-makingprocessesare

transparentanddemocratic.6. Inaccordancewithitsobjectives,thepetitionersactivitiesinclude:

(a)InformingWestEndresidentsandthegeneralpublicaboutissuesandchangesaffectingtheWestEnd;

(b)InformingWestEndresidentsofCouncilmeetingsandappearingbeforeCouncilregardingissuesorchangesaffectingthemandtheWestEnd;

(c)AssistingWestEndresidentstovoicetheirconcernsandopinions;(d)Circulatingpetitions;and(e)OrganizingandhostingcommunitymeetingstodiscussissuesrelevanttoWestEnd

residents.

7. OnoraboutJune18,2009,theCityofVancouverCouncilendorsedaprogramcalledtheShortTermIncentivesforRentalProgram(hereinafterreferredtoasSTIR).

8. TheJune2,2009ReporttoCouncilbytheSTIRSteeringCommittee(theSTIRReport)statedthattheprimarygoalofSTIRwastoincreasethesupplyofrentalhousinginVancouver.Inordertomeetthisgoalandencouragethedevelopmentofnewresidentialmarketrentalhousing,theCityproposedtoprovidevariousincentivestodevelopers,includingthewaiverofDevelopmentCostLevies(DCLs).

9. ADCLisafeepaidbypropertydeveloperstoraiserevenuetopayforimprovementsandamenitiessuchassewage,water,drainageandhighwayfacilities,parkland,childcarefacilitiesandreplacementhousingmadenecessarybygrowthanddevelopment.ThefeeisanimportantsourceofrevenuefortheCity.

10.DCLBylawsadoptedpursuanttotheVancouverCharterestablishboundaries,settherateanddescribehowtocalculatethefee.LeviescollectedwithineachDCLdistrictmustbespentwithintheareaboundary.DCLbylawsmayalsoestablishifandwhenadevelopmentqualifiesforareductionorwaiveroftheapplicablelevy.

11.InordertoproceedwiththeSTIRProgramandincreaserentalhousing,CityCouncilwas


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requiredtoamendcertainbylawsincluding:

(a)ParkingBy-lawNo.6059torelaxparkingrequirementsforrentalhousinggenerally;and

(b)VancouverBylawNo.9755,ABy-lawtoimposedevelopmentcostleviesinthegeneralareaofthecityandAreaSpecificDevelopmentCostLevyBy-lawNo.9418

(bothofwhichimposeDCLsondevelopmentprojects)towaiveDCLswithrespecttorentalhousingdevelopments.

12.BothBylawNo.9755andNo.9418imposeDCLsondevelopmentprojectsthroughoutVancouver.MostoftheWestEnd,however,issubjecttoBylawNo.9755,whileBylawNo.9418appliestootherspecificareasincludingpartsofdowntown.

13.InameetingofCouncilheldonoraboutJune18,2009,CouncillorWoodsworthmovedtorefertheSTIRProgrambacktostaffinorderforthemtoprovideadefinitionofaffordablehousing.TheChairruledthemotionoutoforder,itwasnotputtoCouncilandthetermremainedundefined.

14.OnoraboutJuly7,2009,theCounciladoptedBylawNo.9899ABy-lawtoamendVancouverDevelopmentCostLevyBy-lawNo.9755regardingeligibledevelopments(BylawNo.9899).

15.BylawNo.9899repealeds.3.1ofBylawNo.9755andreplaceditwiththefollowing:3.1 SubjecttothisBy-law,Councilimposes,oneverypersonentitledtodeliveryofa

buildingpermitauthorizingdevelopmentinthegeneralarea,theleviessetoutinsection3.2,

exceptthatCouncilwaivesthelevyotherwiserequiredundersection3.2forconstructionof

for-profitaffordablerentalhousing:

(a) whichtheCityManager,afterconsideringthefinishing,size,locationandother

designconsiderations,andproposedrents,determinestobeaffordable;and

(b) againsttitletowhichtheownerofthepropertyonwhichsuchhousingissituate

hasregisteredaninstrument,informandsubstance,andwithpriorityofregistration,satisfactorytotheDirectorofLegalServices,restrictingthetenureof

suchhousingtorentalonlyfor:

(i)thelongerofthelifeofthebuildinginwhichtheyaresituateand60years,or(ii)suchothertermtowhichthecityandownermayagree.

[emphasisadded]

16.BylawNo.9899alsoamendedBylaw9755byaddingthefollowingdefinition:forprofitaffordablerentalhousingmeansthreeormoredwellingunitsinthesame

buildingorproject,determinedbytheCityManagerunders.3.1tobeaffordable,but

doesnotincludealterationsoforextensionstosuchunits.

17.CouncilalsoadoptedBylawNo.9900,ABylawtoamendAreaSpecificDevelopmentCostLevyBylawNo.9418regardingeligibledevelopments.BylawNo.9900amendedBylaw9418toincludethesameprovisionsasthosesetoutinBylawNo.9899.

18.Thetermaffordable,however,isnotdefinedinBylawNo.9755,BylawNo.9418ortheVancouverCharter.However,pursuanttoSTIRsFrequentlyAskedQuestionscreatedbytheCityofVancouveranddatedMay11,2010,theBylawallowstheCityManagertodetermineaffordabilitywhichSTIRdefinesasmarketrentalhousingforthosewho


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cannotaffordtobuyahome.

19.TheSTIRProgramranfor2yearsandendedonDecember15,2011.AsofMarch27,20124developmentpermitshadbeenissued,6hadbeenapprovedwithpermitspendingand16applicationswereinprogress.ThesedevelopmentsarelocatedthroughoutVancouver,includingtheWestEnd.

20.OnoraboutMay15,2012,theCityCouncilapprovedtheSecuredMarketRentalHousingPolicy,May2012(Rental100).AsisnotedintheStaffReportdatedMay8,2012andthePolicyitself,theRental100Program,likeSTIR,isaimedatincreasingthesupplyofsecuremarketrentalhousingthatisaffordabletomoderateincomehouseholds.

21.UnderRental100affordablerentsaretobeprimarilyachievedthroughtenureasrentingisinherentlylessexpensivethanowning.

22.OnoraboutMay15,2012,theDirectorofPlanningissuedRentalIncentiveGuidelines(theGuidelines)relatingtodevelopmentapplicationsunderRental100.ItprovidesthattheCitymanagerwilldeterminewhetheraprojectmeetsthedefinitionoffor-profitaffordablerentalhousingafterconsideringvariousfactorsincludingfinish,size,limited

on-sitecommonamenities,locationandotherdesignconsideringandproposedrentsbutdoesgiveanyindicationastohowthesefactorsaretobetakenintoaccount.Inaddition,theGuidelinesstatethatrentswillreflectmarketrentsfornewlyconstructedrentalunitswithrentalincreasesgovernedbytheResidentialTenancyAct,S.B.C.2002,c.78.

23.OnSeptember24,2013,theCityofVancouverwillholdapublichearingregardingaproposaltorezone3068KingswayfromC-2CommercialDistricttoCD-1ComprehensiveDistrict.Theproposalisfor30unitsofmarketrentalhousing.AlthoughtherezoningapplicationisbeingconsideredundertheSTIRProgram,itprovidesanexampleofhowtheCityisapplyingtheBylawunderbothSTIRandRental100.

24.TheCitystaffreportdatedJuly9,2013supportingtheapplicationstatesthatthemainfocusoftheSTIRProgram(andnowRental100)istoincreasethesupplyofrentalhousingthatisaffordabletohouseholdsseekingrentalhousingintheregularhousingmarketasanalternativetohomeownership.Thestaffreportalsodemonstratesthatwhiletheproposedrentsarelessthantheaveragerentsfornewbuildingscitywide,theyaremorethanaveragemarketsrentsinVancouverSouth,wherethedevelopmentislocated.

25.Inaddition,thereportstatesthatthatTheCityManager,pursuanttotheVancouverDevelopmentCostLevyBy-law,hasdeterminedthattherentalhousingproposedinthis

applicationisaffordableinthecontextoftheSTIRprogramincentives.

26.TheDLCWaiverforthemarketrentalunitsforthisproposeddevelopmentisapproximately$382,125.

Part3:LEGALBASIS

LimitationperiodsandStanding

1. S.2oftheJudicialReviewProcedureAct(JRPA)provides:


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Applicationforjudicialreview

2(1)Anapplicationforjudicialreviewmustbebroughtbywayofapetition

proceeding.

(2)Onanapplicationforjudicialreview,thecourtmaygrantanyreliefthatthe

applicantwouldbeentitledtoinanyoneormoreoftheproceedingsfor:

(a)reliefinthenatureofmandamus,prohibitionorcertiorari;

(b)adeclarationorinjunction,orboth,inrelationtotheexercise,refusalto

exercise,orproposedorpurportedexercise,ofastatutorypower.

2. Inaddition,s.524oftheVancouverCharterprovides: Illegalby-laworresolutionmaybequashed

524.Ontheapplicationofanelectororapersoninterestedintheby-laworresolution,a

Judgemaydeclaretheby-laworresolutionvoidinwholeorinpartforillegality.

3.Notwithstandingthelimitationperiodsetoutins.526oftheVancouverCharter,thePetitionersapplicationforjudicialreviewisnottimebarred.

S.11oftheJRPA

Loringv.CityofVictoria,[1989]B.C.J.No.1695

Signcorpv.Vancouver(City),[1986]BCJNo.1107,atPara.6

4. WENhasstandingtobringthisPetitionpursuanttos.524oftheVancouverCharterand/ortheJRPAasapersoninterestedintheBylaw.ThePetitionerconsistsofresidentsandelectorsoftheCityofVancouver,wholiveintheWestEnd.Accordingly,Bylaw9755directlyaffectsWENanditsmembers.Itresultsinanincreaseindevelopmentwithoutthecorrespondingincreaseinrevenuenecessarytoprovidefortheimprovementsandamenitiesmadenecessarybygrowthanddevelopment.

SaanichInletPreservationSocietyv.CowichanValley(RegionalDistrict),[1983]4W.W.R.673(B.C.C.A)paras.15and25

AbbotsfordFamiliesUnitedv.Abbotsford(City),2009BCSC463

5. WENalsoclaimsstandingbasedontheeffectonthepublicinterestofthemisuseofmunicipalpowers.

Lambertv.ResortMunicipalityofWhistler2004B.C.S.C.342March15,2004,Vancouver

RegistryL032807pars.1820

TheBylawDelegatesLegislativePowertotheManagerWithoutAuthority

6. Adelegatemaynotre-delegatealegislativeauthority,unlessthatdelegationisexpresslyauthorizedbythelegislation.

VicRestaurantv.CityofMontreal,[1959]SCR58


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7. Section523D(10.4)oftheVancouverCharterconferslegislativeauthorityonCounciltowaiveorreducealevyunderthissectionforaneligibledevelopment.ThereisnothingintheVancouverCharterthatallowsCounciltodelegateitsdiscretionarypowerconferredbys.523(D)(10.4)-(10.5)totheCityManageroranyotherofficial.

8.Pursuanttos.523D(10.3)aneligibledevelopmentmeansadevelopmentthatiseligibleinaccordancewithanapplicablebylawunderthissectionifitfallswithinoneormoreofthefollowingcategories:

a.for-profitaffordablerentalhousing;

b.asubdivisionofsmalllotsthatisdesignedtoresultinlowgreenhousegasemissions;

c.adevelopmentthatisdesignedtoresultinalowenvironmentalimpact.

9. Section523D(10.5)providesthatforthepurposeofsubsection10.4theCouncil,bybylaw: (a)shallestablishwhatconstitutesaneligibledevelopmentoraclassofeligible developmentsforthepurposesofoneormorecategoriesofeligibledevelopment

describedinsubsection(10.3),(b)shallestablishtheamountorratesofreductionforaneligibledevelopment,whichmay

bedifferentfordifferentcategoriesofeligibledevelopmentsdescribedinsubsection(10.3)or

differentclassesofeligibledevelopmentsestablishedintheby-law,and

(c)mayestablishthetermsandconditionsthatmustbemetinordertoobtainawaiveror reductionundersubsection(10.4).

10.Section523DoftheVancouverCharterthusempowersCounciltowaiveDCLs.Todosoitmustdeterminetwothings:(1)Thatthedevelopmentisaffordablewithinthemeaningofthephraseforprofitaffordablerentalhousing;(s.10.3)and(2)thatitisaneligibledevelopmentwithintherequirementsofs.10.5.

11.Councilcannotdelegateitspowerundersection523(D)(10.5)toestablishwhatconstitutesaneligibledevelopment.Section3.1ofBylawNo.9755andBylawNo.9418illegallydelegatetotheCityManagerCouncilslegislativepowertodeterminewhatconstitutesaneligibledevelopmentandtodeterminewhatconstitutesaffordablerentalhousingforthepurposesofVancouverCharter523D(1)s.10.3(a).TheabsenceofsufficientcriteriatodeterminewhetherornotadevelopmentqualifiesfortheDCLwaiverconstitutesaninvaliddelegationofanabsolutediscretiontotheCityManager.SuchapowerofdiscretioncouldonlybegrantedtotheCityManagerbythelegislature.

BarthroppvWestVancouver(1979),17BCLR202(SC)

12.S.3.1ofBylaw9755andBylaw9418providesthatCouncilwaivesthelevyotherwiserequiredundersection3.2fortheconstructionoffor-profitaffordablerentalhousing(a)whichtheCityManager,afterconsideringfinishing,size,locationandotherdesign

considerationsandproposedrents,determinestobeaffordable;However,theBylawdoesnotdefineaffordableorsetoutanyspecificcriteriaforwhatconstitutesaffordablerentalhousing.

13.Furthermore,thesectiongivesnoguidanceastohowthelistedfactors(finishing,sizeetc.)aretobeweighedandconsidered.Thereisnocriteriaformeasuringorcomparingproposedaffordabledevelopmentstonon-affordabledevelopmentsi.e.marketrates


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forequivalenthousingunitsorincomelevelsoftheintendedoccupants.Tothecontrary,theManagerhasbeendelegatedanunfettereddiscretiontowaiveDCLsforprojectsthatarenotaffordableatallbutsimplymarketrental.

14.CouncilcouldhaveprovidedaclearandcomprehensivedefinitionofforprofitaffordablerentalhousingaswasdoneinGreaterVancouverSewerageandDrainageDistrictDevelopmentCostChargeBylawNo.254,2010s.3.1(i)butitchosenotto.

15.CouncilhasimproperlygiventheCityManageranabsoluteandunfettereddiscretiontodecidewhetheradevelopmentqualifiesforaDCLwaiver,contrarytosection523D(10.3)-(10.5)oftheVancouverCharter.

AffordableHousingandRentalHousinghavedifferentmeaningsundertheVancouverCharter

16.S.3.1ofBylawNo.9755andBylawNo.9418empowerstheCityManagertowaiveDCLsformarketrentalhousing,asopposedtoaffordablerentalhousing,contrarytothepowersgrantedunders.523D(10.3)(10.5)oftheVancouverCharter.

17.Thereisnothinginthedefinitionofforprofitaffordablerentalhousingorsection3.1ofBylawsNo.9755andNo.9418thatlimitsthegrantingoftheDCLwaivertoaffordablehousing.Tothecontrary,thecontextofthebylaw,includingtheSTIRpolicy,Rental100andstaffreports,makesitclearthatthewaiveristobegrantedtodevelopmentsthatarenotaffordableatallbutrathermarketraterentals.

Perryv.Vancouver(City),[1994]B.C.J.No.293para.14

18.Totheextentthataffordablemeansmarketrentalhousing,asopposedtofreeholdownership,bothBylawNo.9755andBylawNo.9418areultravirestheVancouverCharter.

19.Itisafundamentalruleofstatutoryinterpretationthatthelegislatureavoidssuperfluousormeaninglesswords,orspeaksinvain.Everywordinastatuteispresumedtomakesenseandtohaveaspecificroletoplayinadvancingthelegislativepurpose.Inaddition,allwordsinastatutemustbegivenmeaning.

R.Sullivan,SullivanontheConstructionofStatutes,5thed.,2008at210

Wintersv.LegalServicesSociety,[1999]3SCR160,177DLR(4th)94atpara.48,citingRizzoShoesLtd.(Re),[1998]1SCR27,154DLR(4th)193

20.Theprovinciallegislaturehasusedboththetermaffordableandrentalindescribingonetypeofeligibledevelopment.Bothaffordableandrentalmustthereforehavedifferentmeanings.Thelegislaturecannothaveintendedthetermaffordabletomean

marketraterentalsversusownership.Suchaninterpretationwouldrenderthewordaffordableorrentalsuperfluousandwithoutmeaning.

21.S.561(3)oftheVancouverChartersupportsthedistinctionbetweenaffordablehousingandrentalhousing.Ifaffordablehousingwasintendedtomeanrentalhousingatmarketratessection561(3)wouldhavebeendraftedwithoutreferencetorentalhousing.Affordablehousingmustthereforemeansomethingdifferentthanrentalhousingatmarketrates.

22.TotheextentthatBylawNo.9755andBylaw9418definefor-profitaffordablerental


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housingasaffordablebecauseitisrentalhousing,theBylawisultravirestheVancouverCharter.

Thepetitionerwillrelyonthefollowing:

(a)TheVancouverCharter,S.B.C.1953,c.55;(b)TheLocalGovernmentAct,R.S.B.C.1996,c.323;(c)TheJudicialReviewProcedureAct,R.S.B.C.1996,c.241;(d)Rules2(1)-(2),14-1,and21-3(1)oftheSupremeCourtCivilRules;(e)Theinherentjurisdictionofthecourt.

MATERIALTOBERELIEDON

1. Affidavit#1ofVirginiaRichards,madeonSeptember18,2013;

Thepetitionerestimatesthatthehearingofthepetitionwilltake1day.DatedatVancouver,BritishColumbiaonSeptember18,2013. ---------------------------------- Signatureof []petitioner[X]lawyerforpetitioner(s) NathalieBaker


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Tobecompletedbythecourtonly:

Ordermade[]inthetermsrequestedinparagraphs......................ofPart1ofthispetition[]withthefollowingvariationsandadditionalterms:..................................................................................................................................................................................................................................................................Date:........................................... .................................................... Signatureof[]Judge[]Master

Documents

WEN Petition for Judicial Review SEPT 18 FINAL