ECONOMIC BACKGROUND
AND
POPULATION GROWTH
IT
V^ncouvxh B.C.
VANCOUVER TOWN PLANNING COMMISSION
OCTOBER, 1945
Digitized by the Internet Archive
in 2011 with funding from
City of Vancouver Archives
http://www.archive.org/details/econbackgrowthOOvanc
A PRELIMINARY REPORT
UPON
ECONOMIC
BACKGROUND
AND
POPULATION
This is the Initial Report of a Series to be published by
VANCOUVER TOWN PLANNING COMMISSION
Vancouver BC.
Prepared as a Revision of the Commission's 1930 Report, under the direction of
HARLAND BARTHOLOMEW" AND ASSOCIATES
Town Planning Consultants
St. Louis, Missouri
31st October, 1944
Price: $0.50
VANCOUVER CITY COUNCIL
1944
Mayor, J. W. Cornett
Aldermen
John Bennett George Buscombe H. L. Corey W. D. Greyell
Charles Jones George C. Miller Jack Price G. H. Worth ington, M.D.
City Officials
City Engineer Charles Brakenridge, m.e.i.c.
City Comptroller Frank Jones
Corporation Counsel D. E. McTaggart, b.a., k.c.
City Clerk Fred Howlett, j.p.
City Solicitor A. E. Lord, b.a.
Medical Health Officer S. Stewart Murray, m.d., d.p.h.
Building Inspector Andrew Haggart
VANCOUVER TOWN PLANNING COMMISSION
1944
Members
Charles T. Hamilton, b.a.sc, m.e.i.c., Chairman
H. V. Jackson, Vice-Chairman
Earl M. Bennett Frank E. Buck, b.s.a. J. C. McPherson
Joseph Briggs F. N. Hamilton W. R. Owen
J. S. Porter, m.r.a.i.c.
Ex-Officio Members
Alderman George Buscombe '. Representing Vancouver City Council
E. A. Cleveland, ll.d., m.e.i.c Chairman, Vancouver and Districts Joint
Sewerage and Drainage Board.
Don C. Brown Representing Board of Park Commissioners
Elmore Meredith, b.a Chairman, Board of School Trustees
F. W. G. Sergant Representing Vancouver Port Authority
Staff
J. Alexander Walker, b.a.sc, c.e., m.e.i.c, Executive Engineer
F. Marjorie Ross, Secretary
M. Isobel Beveridge, Acting-Secretary
TOWN PLANNING CONSULTANTS
Harland Bartholomew and Associates
Harland Bartholomew Russell H. Riley
Eldridge H. Lovelace
Resident Engineer
J. Alexander Walker, b.a.sc, c.e., m.e.i.c
Staff, Vancouver
Elliot A. Schmidt, b.a.sc, Engineer E. H. Drummond, Draughtsman
Rosemary Stewart, Statistical Clerk
ZONING BY-LAW BOARD OF APPEAL
VV. Dalton, Chairman R. M. Edgar John Elliott, b.c.l.s.
Albert J. Harrison, Secretary
3
HARLAND BARTHOLOMEW AND ASSOCIATES
CITY PLANNERS - CIVIL ENGINEERS - LANDSCAPE ARCHITECTS
31/ NORTH ELEVENTH STREET
Saint Louis, Missouri, U.S.A.
31st October, 1944.
Town Planning Commission,
Vancouver, British Columbia.
Gentlemen :
In accordance with our agreement we are pleased to submit
herewith the first of a series of reports that will comprise the revised
Comprehensive Plan for your City.
This report is concerned with the factors that have influenced
the City's growth, with past trends in the amount and distribution
of population and with the probable future population trends. The
findings of this report regarding the amount and distribution of future
population, will be most helpful in determining the location and extent
of necessary future improvements such as schools, parks, transit lines
and the like.
During the preparation of this report we have received the most
helpful co-operation and assistance from various officials and citizens
all of which is gratefully acknowledged.
Respectfully submitted,
HARLAND BARTHOLOMEW & ASSOCIATES
By Russell H. Riley.
TABLE OF CONTENTS
Page
VANCOUVER CITY COUNCIL AND OFFICIALS 2
VANCOUVER TOWN PLANNING COMMISSION AND OFFICIALS 3
ZONING BY-LAW BOARD OF APPEAL 3
LETTER OF TRANSMITTAL 4
FOREWORD BY THE COMMISSION 8
INTRODUCTION—
Why the Town Plan Is Being Revised 9
Scope and Objective of the Report 9
PART I— ECONOMIC AND SOCIAL BACKGROUND
GEOPHYSICAL BACKGROUND
Geographical Location 1 1
Geological Formation 11
Topography 12
Climate 12
Precipitation 14
Economic Development of the City 16
Economic Background 16
Employment of the Population 17
Industrial Development 18
Wholesale Trade 19
Retail Trade 19
Tourist Trade 19
Future Possibilities 20
Municipal Finance 21
Assessed Valuation 22
Tax Rates 22
Bonded Indebtedness 22
Social Background 23
Population Growth 23
Number of Families 23
Racial Characteristics 24
Age of the Population 24
Income 25
Housing Characteristics .. 27
Summary of Findings and Conclusions 29
i
5
TABLE OF CONTENTS— (Continued )
Page
PART II— POPULATION, PAST PRESENT AND
PROBABLE FUTURE
The Importance and Problems of Population Growth 31
Result of Haphazard Growth — Blight 31
City's Growth Must Be Controlled 32
Basis of Population Forecasts 33
Amount of Past Population Growth 33
Growth in Greater Vancouver Area 34
Physical Factors Influencing Urban Growth 35
New Living Units 40
Population Growth in Social Areas (1921 - 1943) 40
Population Densities (1921. 1931 and 1941) 41
Summary — Amount of Probable Future Growth 43
Distribution of Future Population 45
Density of Future Population 46
Method of Securing Future Population Pattern 48
PART III— NATURAL RESOURCES OF BRITISH COLUMBIA
British Columbia — Vancouver's Hinterland 50'
Natural Resources of British Columbia 50
Water Power 51
Forestry 52
Mining 54
Agriculture 56
Fisheries 59
Summary 60
Transportation Routes — Existing and Potential 61
Waterways 61
Railways 61
Highways 62'
Airways 62
APPENDIX— PLANNING ACCOMPLISHMENTS: 1926-1944 64
LIST OF TABLES
Page
Table 1. British Columbia Rainfall Data 15
Table 2. Percentage of Gainfully Employed 17
Table 3. Number of Industries. Industrial Employees and Value of
Manufactured Products 18
Table 4. Comparative Population Densities 21
Table 5. Racial Composition of the Population 24
Table 6. Percentage of Population in Major Age Groups 25
Table 7. Occupational Status of Household Heads — City of Vancouver. 1041 25
Table 8. Annual Earnings of Wage Earner Family Heads —
City of Vancouver, 1941 27
Table 9. Percent of Families Living in Different Types of Dwellings 28
Table 10. Percentage of Owner-Occupied and Rented Dwellings 28
Table 11. Condition of Housing 29
Table 12. Population Growth — In Canada and the Vancouver Area 34
LIST OF PLATES
Plate
1.
Plate
2.
Plate
3.
Plate
4.
Plate
5.
Plate
6.
Plate
7.
Plate
8.
Plate
9.
Plate
10.
Plate
11.
Plate
12.
Plate
13.
Plate
14.
Plate
15.
Plate
16.
Plate
17.
Topographic Characteristics: Lower Mainland and
Vancouver Island of British Columbia 13
Normal Daily Maximum and Minimum Temperatures —
Monthly Average 14
Age and Sex Groups. Percentage, Vancouver, 1941 26
Growth of Vancouver and Surrounding Area Facing page 34
Population Distribution, Metropolitan Vancouver 36
Physical Factors Influencing Urban Growth 37
Areas Served by Sewers and Water 38
New Living Units in Social Areas: 1941-1944 39
Growth of Social Areas, 1921-31-41-43 Facing page 40
Population Density, 1921, 1931 and 1941 42
Population Growth, 1871 to 1941 .„ 44
Future Distribution of Population, Vancouver, 1971 Facing page 44
Future Density of Population, Vancouver, 1971 47
Maps Showing Water Power, British Columbia Facing page 52
Map Showing Timber and Agriculture Areas, British Columbia 53
Map Showing Mining Areas, British Columbia Facing page 54
Accomplishments, 1926-1944 Facing page 64
FOREWORD BY THE TOWN PLANNING COMMISSION
In many parts of the world attention has been directed as never before upon the
advantages of planning the great and vital combinations of human enterprises that
characterize the individual enterprises themselves if they are to prosper. Notable
advances have been made in the technique and in the scope and purposes of the art
of City Planning.
The fifteen-year interval since the publication in 1930 of the Commission's
Report "A Plan for the City of Vancouver" has provided additional material for
a critical review by the Commission's Consultants of the position the City has
attained in that wide and important field of endeavour.
Throughout the next year or two some seven or eight studies will be completed
by the Consultants on the essential factors for our development and improvement.
The Commission has pleasure in presenting here detailed population studies
and the initial and obviously fundamental study of the regional resources that form
the City's economic background, and of the still more general factors that constitute
the basis for its prosperity and anticipated growth.
INTRODUCTION
WHY THE TOWN PLAN IS BEING REVISED.
The first Report issued by the Vancouver Town Planning Commission,
"A Plan for the City of Vancouver", was published in 1928 and covered the
municipalities of Point Grey and Vancouver. After amalgamation, effected 1st
January, 1929, the Plan was extended to the South Vancouver Area and in 1930,
a new edition was published. This has been Vancouver's Plan since that time.
Many cities, wherein a Plan has been prepared, have officially approved and adopted
their Plan, yet made only partial progress in carrying it out. Vancouver is unique
in that its Plan has not been officially approved nor adopted by the City Council, but
it has been faithfully followed with but very few exceptions.
However, in the light of fifteen years of changing conditions, of improvement
in planning technique and of Vancouver's progress, and in view of the City's
inevitable expansion and growth and the number of post-war projects anticipated,
the Commission deemed it advisable to have the Plan reviewed and brought up-to-
date. In this the City Council concurred and the revision is now in progress.
SCOPE AND OBJECTIVE OF THE REPORT.
Basically, the new Plan will have marked improvement over the last, as it will
treat the city as a whole and it will be, therefore, a unified Plan. The unsatisfac-
tory condition of the Plan, heretofore in three parts, will be corrected. The time
for the publication of a revised Plan is extremely propitious as the welter of
conflicting opinions and contentious ideas upon many topics is clarified. The Com-
mission, along with its Consultants, will give its earnest consideration to the many
problems involved, and it is believed the best solutions for them will be presented.
Thus Vancouver lias put its house in order and is in a splendid position to take
its rightful place in the post-war world.
The new Plan contains suggested revision in some of the proposals of the orig-
inal plan but will also contain studies and recommendations upon additional subjects.
For example, all proposed improvements must be related to the probable future
requirements of the citizens. Thus there will be a study analysing how many
persons may live in the Vancouver area by 1971 and where they will be located. This
is the very basis of planning since the major objective of the planning programme
is to provide adequate facilities for the population at the lowest feasible expenditure.
A separate report will deal with conditions affecting the growth and develop-
ment of the general business district of Vancouver's "downtown" section. This will
also contain recommendations for improving this area so that it can serve its proper
function and continue to be the most valuable portion of the city. A large propor
tion of the city's revenue — land and improvement taxes and business licences — is
obtained from this district, and it is but fitting that it should receive special attention.
Air transportation will have an important influence upon future cities and the
new programme will contain recommendations regarding the location of airports and
air terminals.
Thus the revised Plan will deal with all major problems regarding physical
improvements now confronting or which may confront the area during the next two
or three decades. It will contain a coordinated general scheme for dealing with
these problems in the manner that now appears most desirable. Certain minor
revisions and readjustments in the Plan may be necessary from time to time but the
framework will be fundamental.
10
PART I
ECONOMIC AND SOCIAL BACKGROUND
GEOPHYSICAL BACKGROUND
GEOGRAPHICAL LOCATK IN
Vancouver, approximately 49 degrees 17 minutes North Latitude, 123 degrees
10 minutes West Longitude, is located at the southwest corner of British Colum-
hia's Mainland and it lies north of the Fraser River delta lands. It is well protected
from the elements — floods and strong tides of the Pacific Ocean — by Vancouver
Island.
GEOLOGICAL FORMATION
A brief review of the geology of Vancouver will disclose many conditions of
interest to those engaged in the building of a city.
Insofar as Vancouver proper is concerned, there are two distinct parts, differ-
ing in physical characteristics:
1. The Recext Delta of the Fraser. This is underlain by recently deposited
sand, silt and clay with a local veneer of peat. Its surface is less than 40 feet above
sea level and its rich soil produces fine garden products. It constitutes a narrow low-
land, never more than a mile wide, on the north bank of the North Arm of the
Fraser River between Burnaby and Musqueam Indian Reserve. The unconsoli-
dated formations are not the best for foundations but industrial structures of some
magnitude have been erected.
2. The Highland Area. This area extends north from Fraser River delta
to Burrard Inlet. In it there are two principal bedrock formations, separated ap-
proximately by a line extending from the mouth of False Creek to the Second
Narrows. The Kitsilano f< irmation is exposed south of this line and the underlying
Burrard formation to the north of it. Both are of Eocene age and consist of sand-
stone, shale and conglomerate with a few thin seams of lignitic coal. The general
dip of the beds is about ten degrees to the south. Here and there the Eocene forma-
tions are cut by dykes and irregular bodies of basalt, termed the Prospect
Point Eruptives. Exposures of the basalt may be seen at Little Mountain, on the
southeast side of the False Creek Fill, and between Siwash Rock and Prospect Point.
At the latter place a dyke. 50 feet wide, forms the prominent cliff that rises 200 feet
above First Narrows. Several small dykes are exposed at low tide on the western
part of Kitsilano Beach.
Throughout much of the Highland Area, the bedrock formations are obscured
by a cover of glacial till with associated gravel, sand and clay. The thickness of this
surface veneer is quite variable, but in places it reaches 200 feet and more. Locally
11
these materials are in turn covered by recent alluvial deposits of gravel, sand or clay,
as, for example, at Trout Lake, Killarney Park, and in the raised valley running
from Jericho Beach to Quilchena. In the first two localities and at a few other
places there are relatively small peat bogs.
The geological formations on the whole are very satisfactory for the construc-
tion of the many buildings and utilities that make up a city.
TOPOGRAPHY
Vancouver is situated on the peninsula of land lying between the North Arm of
the Fraser River on the south and Burrard Inlet and English Bay on the north.
The city proper contains approximately 44 square miles and lies on a rolling ter-
rain admirably suited for the site of a great city. The natural harbour is unique
among the world's harbours, and there are a considerable number of adjacent
areas of level land for port and industrial use. As is common with all port cities on
a seacoast or wide river, Vancouver has grown in a characteristic semi-circle. Its
growth, however, while not checked by, has been influenced greatly by the position
of False Creek. Although this waterway has been costly to bridge, and still more
bridges will be required to prevent traffic "bottlenecks", its value as a waterway
transcends these considerations. Before the automobile era and long before the
present number of bridges were in existence, False Creek was the cause of a heavy
concentration of population in the central portion of the city and in the West and
East Ends. This was not an unmixed blessing, as the citizens were content with
their environment. However, with the advent of the automobile, the False Creek-
barrier to southward and westward expansion disappeared.
The first and most important element in the growth of Vancouver is the fact
that it is a seaport. Upon a study of a contour map or relief model of the south-
westerly portion of British Columbia, Plate Number 1, and the location of Van-
couver thereon, one is at first astounded at the very possibility of Vancouver being
anything but a transfer point between rail and ship, with such a mass of moun-
tains as a hinterland. However, the Lower Fraser Valley, though not extensive
comparatively, is a convenient, splendid agricultural area for dairying, mixed farm-
ing, fruits, and vegetables. Other areas in British Columbia — in portions of the
eastern shore of Vancouver Island and the Okanagan and Kootenay Valleys — are
also very productive, agriculturally and horticultural!}', and the ranges of the Cari-
boo for cattle, horse, hog and sheep raising", are also comparatively convenient.
CLIMATE
British Columbia is unique among Canadian Provinces in that it has the
greatest variation of temperatures, humidity and precipitation.
The Lower Mainland and the southerly portion of Vancouver Island have the
most salubrious climate in Canada. Here is seen the least fluctuation of tempera-
tures. The mild winters and cool summers are conducive to health and energy.
This condition is due to thg influence of the mountains along the Coastal region and
to the warm Pacific Ocean currents flowing directly to these shores. This combina-
tion produces equable climatic conditions unrivalled in Canada.
12
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13
The accompanying graphs, (Plate Number 2), show the Normal Daily Maxi-
mum and Minimum Temperatures, shown month by month, of typical British
Columbia points and prominent Canadian cities. These graphically illustrate the
wide divergence of temperature both within and without the province.
The highest temperature recorded in Vancouver was 92.4 degrees — June, 1923
— and the lowest 2.3 degrees, in January, 1907. In January of both 1935 and 1943,
the temperature dropped to almost the low record.
Precipitation'. The average annual precipitation in Vancouver, taken over
a period of 39 years, and taking 10 inches of snow equal to 1 inch of rain, is 56.22
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Plate 2
14
inches. The maximum precipitation occurred in 1937 when 66.97 inches were re-
corded, and the minimum, 3~.&3 inches, fell in 1929.
The accompanying Tahle Number 1 shows the great variation in precipitation at
representative localities in British Columbia during 1944. The average precipita-
tion over the years indicated is also shown. The Meteorological Stations are given
in the order of their average precipitation.
Table Number 1
BRITISH COLUMBIA PRECIPITATION DATA
Station
District
Total Inches of Rainfall Years
1944 Average Recorded
Swanson Bay...
Ocean Falls
Port Alice
Prince Rupert.
Vancouver
Masset
Powell River...
Nelson
Victoria
Prince George.
Cranbrook
Fort St. John ...
Kelowna
Atlin
Kamloops
Ashcroft
North Coast
.Middle Coast
.W "est Coast, V. I
.North Coast
.South Coast
.North Queen Charlotte Islands.
_South Coast
.West Kootenay
.South Vancouver Island
.Central Interior
.East Kootenay
.Peace River
.Central Okanagan
North Boundary, B. C
. Lower Thompson
Middle Fraser River
190.50
(23)
169.0/
165.70
(30)
107.03
109.40
(21)
73.20
95.47
(36)
47.76
58.07
(43)
57.44
55.62
(47)
26.36
35.33
(29)
19.58
27.83
(43)
18.69
26.67
(59)
24.55
21.00
(31)
8.02
14.03
(39)
16.44
—
18.03
12.09
(30)
9.84
11.08
(39)
9.97
10.16
(53)
9.90
7.01
(29)
15
ECONOMIC DEVELOPMENT OF THE CITY
The average modern city on this continent has had a rather rapid evolution
from the comparative simple life and structure of the horse-and-buggy community
to the complex organism of the present day. In the transition from commercial and
shipping to an industrial economy many forces, historic, economic and social, have
acted to direct the growth and mould the character of the new community. In order
to guide intelligent planning some understanding of these forces is necessary —
their place in the past development and their probable influence on future growth.
Any sound improvement programme for the city must take cognizance not only
of the requirements of its inhabitants, for a satisfactory standard of civic life, but
also of the financial ability of the community to meet past obligations and to assume
new debts. The scale and extent of these physical needs are conditioned not only by
the city's general growth but also by the cultural interests and social relationships
of its inhabitants, and these factors in turn are dependent in large measure on the
economic well-being of the entire city. The community's ability to finance the pro-
gramme is ultimately measured by the aggregate income of its citizens.
These numerous economic and social factors will be considered, and in the light
of their performance and experience in guiding the city's past development, it is
proposed to attempt from such analysis to forecast something of the nature of the
future city.
Economic Background. Vancouver has grown mainly by virtue of being the
first seaport on the Pacific Coast of Canada having rail connection with the rest of
the continent. While it has taken advantage of its location for the distribution and
transhipment of supplies, new fields of endeavour must not lie overlooked. As de-
picted in Part III of this Report, its hinterland in the main, consists of a rugged
mountainous country, but nearby are extremely fertile valleys. Furthermore, in
addition to British Columbia's Peace River plains, there is an opportunity of
economic trade with Alberta and Yukon and parts of Saskatchewan and Mackenzie.
The diversity of natural resources, some of which have been and are being
developed in the southern part of British Columbia, have been of great benefit
to the City of Vancouver. With the opening of the northern portion, having in mind
the contemplated construction of railways and highways to and within this vast
area, trade and commerce, both domestic and foreign, will be greatly increased in
this city.
Vancouver has afforded many opportunities for gainful employment. With
regard to industry as a whole, two factors are outstanding; firstly, the mild climate
makes for cheaper building (factory) construction, and secondly, cheap power, orig-
inally from the favourable low cost fuel — wood and coal — and latterly, from
hydro-electric sources.
16
The initial industry was the sawmills and through the years other industries,
chiefly the processing of our diversified natural resources, gradually were estab-
lished. An unusually rapid expansion, during the present war has resulted from
employment made available in aircraft and ship, including marine engine, construc-
tion.
Employment of the Population. The possibilities of obtaining gainful em-
ployment is one of the most important influences upon the growth of any community.
This is strikingly true at the moment — the employment afforded by war industries
has reached a very high figure. This has changed some of the former efforts to
provide employment, for example, the city formerly spent substantial funds in
advertising its tourist attractions and is now advising the outside world that no
accommodation is available.
The past trends in the various classifications of employment will afford some
indication of the possibilities of future employment in Vancouver. While it is likely
that such trends will be affected in the change over in industry from the war to
peacetime tempo, they will give a reasonable picture over the long period covered
by the city's Plan.
Table 2
PERCENTAGE OF GAINFULLY EMPLOYED BY MAJOR OCCUPATIONAL CLASSIFICATION
Primary
Manufacturing
Construction Trade and Professional Domestic and Clerical
Mechanical Transportation Finance Sendees Personal Serv. and Others
IC)2I I94I ip2I jp4I IC)2I 194I IQ2I I94.I ICJ2I I941 1921 1941
Vancouver 26 30 10 10 17 16 8 7 15 17 24 20
Montreal 33 37 9 10 15 12 7 7 11 14 25 20
Toronto 32 33 9 8 18 14 7 8 10 15 24 22
Winnipeg 23 28 12 10 19 15 7 7 12 17 27 23
Hamilton 40 47 7 8 12 10 6 6 S 10 27 19
1920 1940 1920 1940 1920 1940 1920 1940 1920 1940 1920 1940
Seattle 37 25 11 11 17 26 8 16 11 9 24 13
Rochester 54 30 6 13 12 16 6 11 7 6 15 24
Louisville 40 36 10 12 15 22 6 8 15 12 14 10
Atlanta 28 26 11 10 17 23 6 13 22 21 16 7
Houston 30 29 12 11 16 24 6 7 18 17 18 12
Note: Percentage of Total. 10 years and older, for United States cities.
Percentage of Total. 14 years and older, for Canadian cities.
For the purpose of comparison, the major occupations are classified and the
percentage of the gainfully employed workers, in each classification, is shown on
Table 2. The figures in this Table are taken from the records of the Dominion
Bureau of Statistics for the Canadian cities. Owing to the fact that the amalga-
17
mation of Vancouver, Point Grey and South Vancouver took place on ist January,
1929, the figures for 192 1, include the then three municipalities. Vancouver is
compared with the other four largest Canadian cities. Obviously this comparison
must be on a percentage basis, owing to differences in the population. Again for
comparison five American cities, Seattle, Washington; Rochester, New York;
Louisville, Kentucky; Atlanta, Georgia; and Houston. Texas, are listed. All these
cities, with the exception of Seattle, have populations close to that of Vancouver.
Seattle, although considerably larger, has been included as, in regard to location (a
Pacific seaport), climate and general environment, it is closely allied with Van-
couver. Of particular importance is the fact that, while industrial employment does
not represent as large a percentage of employment in Vancouver as in the other
cities, this type of employment is increasing whereas it decreased in all of the
American cities shown. With the city's excellent location and abundant resources,
it should develop into a very important industrial centre.
Table 3
NUMBER OF INDUSTRIES, INDUSTRIAL EMPLOYEES AND VALUE OF
MANUFACTURED PRODUCTS PER 1000 PERSONS
1929 and 1939
Industries Per Industrial Employees I 'alue of Manufactured
City 1000 Per woo Products Per 1000
1929 1939 £_________ 1929 1939
Vancouver 2.8 3.1 72 67 433,000 377,000
Montreal 2.3 2.8 134 119 768,000 545,000
Toronto 3.7 4.4 168 149 973,000 730,000
Winnipeg 2.4 2.9 91 80 519,000 366,000
Hamilton 2.8 2.8 240 192 1,342,000 929,000
Seattle 3.3 2.9 63 55 546,000 415,000
Rochester 2.8 2.2 159 147 1,161,000 938,000
Louisville 2.2 1.7 113 94 880,000 899,000
Atlanta 1.9 1.7 68 69 506,000 549,000
Houston 1.4 1.6 54 39 500.000 368,000
Industrial Development. With respect to industry as a whole, it will be
of interest to note that manufacturing in Vancouver has increased more than any
other branch of industry in any Canadian city during the war years.
Taking the year 1926 at 100, the following, supplied by the Dominion Bureau
of Statistics, shows the comparative manufacturing progress, with the correspond-
ing index, in other Canadian cities:
18
City 19^6 1944
Index Index
Vancouver 100 433-2
Vancouver (including Lumber Products) 100 594-2
Quebec 100 361 .4
Windsor 100 327.6
Montreal 1 00 235. 1
Toronto 100 230. 1
Hamilton 1 00 1 89.7
Winnipeg 1 00 1 83.
Ottawa 1 00 1 69.
2
'
For all Canadian Industries, and taking the Dominion General Employment
Index as 178.2, the following is of interest:
Employment Index Number of Windsor 288.4
Employment Index Number of Quebec 260. 1
Employment Tndex Number of Vancouver -42.9
Wholesale Trade. Vancouver is not only an important wholesale market
for British Columbia but it is also the distributing centre of many commodities of
practically all types destined for Yukon Territory. Alberta and to a lesser degree
Saskatchewan. It has held the leading position on the West Coast of Canada in
wholesale trade since shortly after the turn of the century, and as its territory
expands in development, its trade will increase correspondingly.
Retail Trade. By virtue of being the only large shopping centre in Canada
west of Calgary, Vancouver enjoys an unusual position with respect to retail trade.
The depression naturally affected the volume but even for two or three years
before the war, conditions improved considerably. Due to the general increase in
war activities and the resulting higher incomes, the volume of retail trade has
increased to a very considerable extent. Of recent years this increase has been
accentuated by restrictions imposed by war conditions which precluded the shop-
ping previously done in neighbouring American cities.
The number of retail stores per 1000 population in Vancouver increased from
15 in 1930 to 16 in 1941 and the sales per capita, from $498.00 to $527.00 (6 per
cent) in the same period. With the exception of two, all the larger eastern
Canadian cities showed increases; one of the largest showed a decline and another
remained the same.
Tourist Business. The value and importance of the Tourist Business was
considered so favourably by the Provincial Government that it created a Tourist
Department under the Ministry of Trade and Industry. For many years the Van-
couver Tourist Association, composed of local business men and representatives of
the City Council, has operated a tourist service and it has not only been instrumen-
tal in advertising British Columbia but it has kept tourist records that are invalu-
able. It is a member of the International Evergreen Playground Association and
19
the Canadian Association of Tourist and Publicity Bureaux. It will be realized from
these affiliations that this community received very wide publicity which has
attracted and will attract many millions of visitors.
The tourist business is now considered to be a "basic industry". In pre-war and
pre-depression days it ranked as the third industry in British Columbia. Steps are
now being taken, looking forward to post-war days, that will place the tourist
industry among the greatest in British Columbia.
Money spent in British Columbia in pre-war years by tourists amounted to
as high as $32,000,000 annually. During the war years, the Tourist Business has
dropped to a mere trickle compared with former years. However, as an indication
of the upward trend, there was an increase of 41 percent in the number of Ameri-
can visitors to Vancouver in the first 9 months of 1945 over the same period of
1944.
This province is a tourist's paradise; nature has endowed it with everything
a tourist desires — a perfect summer climate, unparalleled mountain scenery, the
sheltered coastline with fjords surpassing those of Norway, and the finest trout and
salmon fishing in sheltered waters.
However, the benefit of this activity requires that some local responsibility be
assumed. The accommodation and facilities that are essential for the proper
reception of the tourists must be provided.
Better dust proof highways to the scenic wonders are needed; highways to and
through the national and provincial parks are wanting, and hotel and camp accom-
modations are a pressing necessity. When these are provided the annual tourist
harvest should rank first in British Columbia and probably in Canada. To attain
this abundant harvest, it is not necessary to "seed" or renew each spring, the
scenery never wears out and the "supply" is inexhaustible.
Future Possibilities. The key to the growth and stability of British
Columbia's business conditions lies in this Province's diversified production —
forestry, fisheries, agriculture, horticulture, mining, fur trapping and farming, and
manufacturing, British Columbia is known to be a vast storehouse of natural
resources.
Approximately one-half of British Columbia's population is concentrated in and
around the metropolitan area of Vancouver. In spite of its mountainous terrain
there is plenty of room in the province for at least ten times the present population.
Switzerland, much more mountainous than British Columbia, supports 267
persons per square mile and Scotland 165. Washington, British Columbia's neigh
hour and the nearest in character, supports 25 persons per square mile to British
Columbia's two. Table 4 will serve to indicate that, of all the mountainous countries
of the World and of the mountainous States of our neighbouring nation, British
Columbia has the lowest population density; and due to its climate and resources it
could well be among those of the higher densities. Even after much of its expend-
able resources are used up; its recurring resources and its scenic attractions for
tourists could support a large population.
20
Table 4
COMPARATIVE POPULATION DENSITIES, BRITISH COLUMBIA
AND OTHER REGIONS
Persons Per
■■iica Square Mile
British Columbia 2.2
Canada 3.1
Manitoba 2.9
Alberta 3.1
Saskatchewan 3.6
Quebec _ , 4.7
Ontario 9.3
New Brunswick 16.3
Nova Scotia _ 27.0
Prince Edward Island 43.5
United States 43.5
Alaska 0.1
Wyoming 2.6
Montana 3.8
Idaho 6.2
Colorado 10.8
Oregon 11.3
Texas 24.1
Washington 25.1
Iceland 3.1
Peru . 9.9
Norway 23.6
Finland 24.5
Mexico 25.4
Sweden _ 36.8
Scotland 165.4
Switzerland 267.0
Municipal Finance. Every city, especially a rapidly expanding one, must be
continually making improvements. It is important that these improvements are of
the greatest value to the community as a whole and are appropriate in design and
wisely located. In this connection, the city's Plan will be of inestimable value as the
civic autiiorities will be assured that all the new projects will be constructed in
accordance with the preconceived Plan of the city, i.e. that all the new improve-
ments will be properly integrated.
However, the sound financial condition of the city is of the utmost importance
in order to insure the successful execution of a capital expenditure programme.
21
Assessed Valuation. The assessed valuation of all property, land and im-
provements, is of the greatest consequence to the community as it is the basis of
its principal source of revenue.
Property values fluctuate considerably with general business conditions. Pro-
longed periods of depression or of prosperity are eventually reflected in assessments
for tax purposes. The demand for lowered assessments was prevalent during the
recent depression when there was a general collapse in prices and depreciation in
the values of property and improvements. Prior to the depression there was a
general rise in assessment values.
The following shows the revisions that have been made in five-year periods
since amalgamation in 1929 and also the mill rate. The amounts given are the rate-
able assessments only and do not include the valuations of Crown property, city-
owned, tax sale or miscellaneous property. Among the latter are properties which
are used exclusively for church purposes. Taxes are paid only on half the assessed
value of the improvements.
improvements Land Totals Millagc
1929 $1/1-567.984 $161,701,641 $333,269,625 37.50
1934 194,484,457 157,729,425 352,213,882 39.88
1939 183,962,043 117,872,620 301,834,663 47.65
1944 206,760,245 111,197,145 3T7,957,390 5040
The increased building activity in the city since 1939 is reflected in the sub-
stantial increase in the assessed value of improvements. The assessed value of land
has decreased progressively since amalgamation.
Tax Rates. Of recent years there has been a generally enlarged compass of
governmental operations in response to the increasing public demands for better
streets and traffic conditions, better educational services, additional park and
recreational facilities, greater health protection and extended welfare services have
resulted in a decided increase in governmental costs. Most of the revenue must
be produced from taxes levied on the assessed valuation of real property. It usually
follows, therefore, that if the valuation level is low, the tax rate is inevitably high,
while a low tax rate may accompany a high valuation. Due to the governmental
costs becoming so high, quite frequently there has been a general increase in the
rate concurrent with the rise in assessments.
The fluctuations of assessment and tax rates which were discussed is seen in
the above statement.
Bonded Indebtedness. The ordinary municipal tax revenues are usually
insufficient to supply all the funds that are necessary to carry out the varied types
of permanent improvement and the city must resort therefore, to the sale of long
term bonds. These securities are paid off over a period of years from revenues
derived either from taxes or other incidental sources of revenue. When the life of
the improvement exceeds the period of amortization this method is sound, and it has
the advantage not only of securing the immediate funds needed but it also allocates
a share of the cost on the future users of the improvements.
22
Insofar as Vancouver is concerned, with respect to raising" funds by bond issue,
the charter provides that it cannot exceed 20 percent of the assessed value of the
real estate, which includes buildings, computed on an average taken from the assess-
ment rolls for the two years antecedent to the creation of the debt.
The following shows the Bonded Indebtedness of the city, at five-year intervals
since amalgamation :
■&«
i929 $55-7I2.S49-34
1 934 66,448,892.94
1939 67.71 7,042. 1 8
1944 61,509,160.06
This indicates that due to the lowering of the assessed valuations, the city
has about reached the limit of its borrowing power. However, there is every reason
to anticipate that assessments will logically increase in total volume on account of
the expected development and increased population.
Social Background. The social background of a community must be taken
into consideration in the preparation of its Town Plan so that appropriate and con-
vincing interpretation may be given to its needs. The proper evaluation of the social
development of a community is nearly always difficult owing to the meagreness and
inadequacy of the statistics usually available.
However, the extent of the various public improvements ; park and recreational
facilities; general housing conditions; the characteristics of the population, includ-
ing the number of families, racial groups and the age groups, its economic status,
and the educational status of the people are all given consideration.
The social progress of Vancouver will be reviewed through the medium of these
general criteria.
!->
Population1 Growth. Population has too often been used as a gauge of
general prosperity. In many instances this is not necessarily true. It is quite pos-
sible for a city to be very prosperous and have a stable population. Conditions
during the depression years caused abnormal fluctuations of population in many,
especially the larger, cities.
A growth that is too rapid makes difficult the adequate provision of the essen-
tial urban facilities and services. Consequently a rapid growth is all too frequently
haphazard and unplanned and it very easily can have a deleterious effect on the city.
A steady growth for Vancouver would be much better in all respects. The various
periods of rapid growth in the past are still reflected in the many troubles with
which the civic authorities are confronted. Vancouver has grown very rapidly,
its rate of growth comparing very favourably with any Canadian city and being far
more rapid than is found in practically any large American city.
Number of Families. As each family in a community requires a living unit
which in turn requires certain public services, therefore, in planning, the number
of families is even more important than the number of persons in the community.
23
Racial Characteristics. Table 5 shows the trend in racial characteristics of
Vancouver's population and also the comparison with other Canadian and Ameri-
can cities, for the last two census years of the respective countries. It will be noted
that the white race predominates in the Canadian and Northern United States cities.
The Southern cities, as would be expected, have a large percentage of negroes.
Seattle and Vancouver have a larger percentage of orientals as they are on the
Pacific Coast. Since the last census, the percentage of orientals has dropped in these
two cities owing to the exclusion of the Japanese from the Coast as a defence
measure. It is estimated that the oriental population of Vancouver, predomin-
ately Chinese, was approximately 2.2 percent in 1944.
Table 5
RACIAL COMPOSITION OF THE POPULATION
City
Present
White
Present
Negro
Present
Oriental
i93i
1941
J931
1941
I931
1941
Vancouver
... 91.1
92.9
0.1
0.2
8.8
5.9
Montreal
... 99.7
99.6
0.1
0.2
0.2
0.2
Toronto
... 99.5
99.3
0.1
0.3
0.4
0.4
Winnipeg
... 99.4
99.5
0.1
0.2
0.5
0.3
Hamilton
99.6
99.7
0.2
0.2
0.2
0.1
1930
1940
1930
1940
'930
I940
Seattle
... 95.9
96.1
0.9
1.0
3.2
2.8
Rochester
... 99.1
99.0
0.8
1.0
—
—
Louisville
... 84.6
85.2
15.4
14.8
—
—
Atlanta
... 66.7
65.4
33.3
34.6
—
—
Houston
78.2
77.1
21.7
22.4
0.1
0.1
— Less than 1/10 of One percent.
Data from Dominion Bureau of Statistics and United States Bureau of the Census.
Age of the Population. In the early days of Vancouver and British
Columbia, youth predominated. With the passage of time, the population has grad-
ually become older and furthermore, owing to the kindly climate, many elderly folk
migrated to the Coastal communities to pass their declining years. Table 6 shows
the percentage of population in the major age groups in Canadian and United States
cities in 1941 and 1940 respectively.
24
8
40
35
9
42
24
8
41
32
9
43
30
9
40
29
7
41
36
9
40
33
8
42
29
9
47
23
8
50
21
Table 6
PERCENTAGE OF POPULATIOX IX MAJOR AGE GROUPS
City Percentage of Total in Various Age Groups
0-14 15-19 -0-44 4$ and over
1941 Vancouver 17
Montreal 25
Toronto 19
" Winnipeg 18
Hamilton 22
1940 Seattle 16
Rochester 19
Louisville 21
Atlanta 21
Houston 21
It will be noted that Seattle and Vancouver lead in the oldest group. It is evi-
dent that Winnipeg and Toronto have many elderly people living in retirement from
rural districts. It is somewhat remarkable that 1 percent of Vancouver's popula-
tion is over 80 years of age. (Plate Number 3.)
The age of the population is a fundamental factor in the planning of recrea-
tional areas and schools. The age basis is not so material in estimating future popu-
lation as no community grows solely by its natural increase, but primarilv by
migration.
Income. There is a relationship between the annual family income and the
value of a home a family owns, and a similar relationship between the rental paid
and income. These figures shown on Tables 7 and 8 were obtained from the Do-
minion Bureau of Statistics. Some impression of the economic status of the fami-
lies within Vancouver can be obtained by an analysis of the occupations and
incomes.
Table 7
OCCUPATIONAL STATUS OF HOUSEHOLD HEADS
CITY OF VANCOUVER— 1941
Status Percentage of Total
Wage Earner 59.2
Own Account* 14.4
Employer 2.4
Retired 11.4
No Pay 0.1
Other Income 1.1
Home Maker 1 1.4
100.0
*In business for one's self.
25
AGE and SEX GROUPS
PERCENTAGES from 1941 CENSUS
CITY of VANCOUVER, B.C.
TOTAL POPULATION 275,353
207. (5% 10% 5%
VANCOUVER
TOWN PLANNING
COMMISSION
1944
5% fO% (5% 20%
HARLAND BARTHOLOMEW
£> ASSOCIATES
TOWN PLANNERS
Plate 3
26
Table 8
ANNUAL EARXIXGS OF WAGE EARNER FAMILY HEADS
CITY OF VANCOUVER— 1941
Annual Earnings Percentage of Total
0 — $ 500 11.8
$ 500— 1000 18.3
1000— 1500 32.5
1500— 2000 21.5
2000— 3000 10.9
3000— 4000 3.2
4000— 5000 0.8
5000 or more 1.0
100.0
From Table 8 it will be noted that over 30 percent of the families earn less
than $1,000 per annum. This covers almost a third of the wage-earners and results
in certain economic and planning problems. From the standpoint of the latter,
it will be realized that there is a problem of providing housing facilities of mini-
mum desirable standards. Also, if and when the facilities are provided, they
will not return enough municipal taxes to pay for the public services and facilities
needed in the areas. This in turn merely results in increasing the tax upon other
sections of the city.
Housing Characteristics. It is largely a matter of personal inclination,
although this is governed considerably by economic conditions, as to whether a
family lives in a single-family dwelling, a two-family dwelling or a multiple-
family dwelling (apartment). On the other hand it is quite possible that the type
of housing found in a city is that which has been offered to the population by the
speculative builder rather than the type the people actually want.
Information on the types of dwellings used in Vancouver and in Canadian
and American cities is given in Table 9. The very high percentage of families who
live in single-family houses in Vancouver is particularly striking. One Canadian city
only, Hamilton, equals it. Over three times the number of families live in apart-
ments as compared with those living in two-family dwellings. This phenomenon is
very important and must be considered in planning a city. Two-family dwellings
and multiple dwellings are obviously rental in character and therefore, depreciate
much faster than the single-family home that is owner-occupied. The proportion of
families living in multiple dwellings in Vancouver is increasing and careful planning
and control is necessary to prevent early depreciation of the neighbourhood — the
first stage of permanent blight.
27
Table 9
PERCENT OF FAMILIES LIVING IN DIFFERENT TYPES OF DWELLINGS
— 1941 —
City Single-Family Two-Family Multiple Dwellings
Vancouver 75 6 19
Montreal 8 21 71
Toronto 39 36 25
Winnipeg 67 8 25
Hamilton 75 11 14
— 1940 —
Seattle 57 5 38
Rochester 55 21 24
Louisville 51 19 30
Atlanta 37 31 32
Houston 58 19 23
Table io shows the trend in owner-occupied and rented dwellings in the ten
years between the last two census years, in Canadian and American cities. Vancou-
ver not only ranks high in home ownership but it has also maintained its status
through the decade. Every other city listed has lost ground in this regard. This
factor indicates that Vancouver is a city having a large percentage of home-owners
and it also would imply that single-family neighbourhoods, with such a high per-
centage of home ownership, will be maintained successfully in value and appear-
ance over a long period.
Table 10
PERCENTAGE OF OWNER OCCUPIED AND RENTED DWELLINGS
1931 AND 1941
Percent Percent
City Owner Occupied Rented
1931 1941 /pj/ 1941
Vancouver 51 51 49 49
Montreal 15 11 85 89
Toronto 47 42 53 58
Winnipeg 48 44 52 56
Hamilton 48 45 52 55
1930 1940 1930 1940
Seattle 51 44 49 56
Rochester 51 40 49 60
Louisville 42 36 58 64
Atlanta ._ 29 25 71 75
Houston .7. 40 34 60 66
28
Table 11
CONDITION OF HOUSING
City
Percent
*Jn Bad
t onditiou
With No
Running
Water
1 f 'ith Xo Gas
or Electric
Lighting
With No Gas
or Electric
Stores
J I' ith Xo
Inside
Toilet
With No
Bath
(1941)
Vancouver IS
Montreal 13
Toronto 13
Winnipeg 22
Hamilton 18
( 1940)
Seattle 5
Rochester 10
Louisville 12
Atlanta 23
Houston 12
1
1
48
2
6
X
X
19
X
13
0
X
4
X
2
1
X
23
1
12
X
X
1
1
6
4
1
30
2
4
X
X
10
X
X
9
5
15
16
36
13
19
41
13
23
18
6
15
18
25
* "Needing External Repairs" for Canadian Cities.
x Less than one-half of one percent.
The condition of the existing housing as determined in the last census, Tahle
ii, indicates that Vancouver's housing is somewhat impaired and requires rehabili-
tation. The city's homes are not particularly deficient in the matter of home con-
veniences with the exception of gas and electric stoves, as compared with other
cities. The reason for this is no doubt due to the influence of the abundant supply
of wood and coal and the popularity of oil burning stoves.
Summary of Fixdings axd Conclusioxs. Compared with most other large
cities, Vancouver is a young city. It is a city of single-family homes and there is
an unusually large percentage of home ownership. It also covers a comparatively
large area and this means that, apart from the areas north of False Creek, the
density of population is rather low. This condition makes for the soundest type
of urban development with respect to living conditions. There is the responsibility
of the civic government, however, to supply with and to plan for park and school
facilities and public utilities for a more widespread area.
With the vast resources contiguous to Vancouver, there is every indication that
it will continue to grow. Its commercial and transportation pursuits which have
expanded since its early beginning, will continue in increasing volume. Its manu-
facturing industry which has grown in latter years may be expected to expand.
I f Vancouver is to become a very large manufacturing centre, it will most probably
be by the processing and refining of the varied natural resources of the province.
Facilities for the attraction and accommodation of tourists should be pro-
vided more abundantly if full advantage is to be taken of the possibilities of the
tourist industry.
29
It will be realized from the foregoing that considerable expansion of the city
is inevitable. Financial and business interests must take advantage of the resources
by encouraging industrial and commercial development to locate here. The Plan must
provide for the physical improvements necessary for a sound urban area and at an
expenditure that will not result in an undue tax burden.
30
PART II
POPULATION
PAST, PRESENT AND PROBABLE FUTURE
THE IMPORTANCE AXD PROBLEMS OF POPULATION GROWTH
The amount and distribution of population has an important influence upon all
phases of a community's development. The relationship that should exist between
the physical improvements and the population which they serve is of primary impor-
tance. The location of the population will determine the areas in which the physi-
cal improvements should be undertaken, and the amount or density of population in
each area will determine largely the size and extent of the needed facilities. The
recommendations embodied in the Town Plan therefore, must be based upon care-
ful studies of the future population.
Result of Haphazard Growth — Blight. One of the most outstanding char-
acteristics of the average North American city is that most of its development has
been at cross purposes with orderly and logical urban growth. Vancouver is no
exception but since it is a young city, this characteristic has not had the pronounced
effect it will have during the next twenty to thirty years. Population has been
continually shifting, moving from the older central areas to the suburbs. Long
before the buildings, streets and other public facilities have served their normal
period of usefulness, residential neighbourhoods have lost their attractiveness, and
much of the population has scattered to the periphery where new facilities must be
provided. Public expenditures are unnecessarily high, and tax rates are increased
both to provide additional revenue and to offset decreased assessments in the aban-
doned sections. Individual property investments are jeopardized by the general
instability and depreciation of surrounding development.
As a result of this uncontrolled and unsound growth, the modern city is char-
acterized by at least three broad classes of residential development, which, collec-
tively, compose the population pattern of the community. In the older central sections
of the city immediately surrounding the commercial and business centre are the
areas of inferior and substandard housing which constitute the slums and badly
blighted sections of the city. Surrounding these slums lie areas of old, though some-
what better residential sections, extending out from fairly compact neighbourhoods
to sporadic suburban development.
It is obviously impossible to accurately prophesy exactly what is going to happen
after the war, but as previously mentioned it is essential at this time to determine
what influences have brought about the past growth, and to what extent these will
be available in the future.
31
In the United States of America a general stabilization of population within
the next two or three decades is anticipated. This, unless there is a pronounced
change in birth rate, may be a factor in the slowing down of urban growth if the
population continues to migrate from both rural and other urban areas.
In the Dominion of Canada, however, a large influx of population is looked
for and it is expected that British Columbia will receive as large or a larger
proportion than other provinces. For the same reasons that have attracted popu-
lation in the past and for many other reasons including the new post-war condi-
tions, it is anticipated that Vancouver will continue to grow, not at the same rate,
but in substantially large numbers each year.
Nevertheless, in spite of Vancouver's phenomenal growth in the past, it has
been impossible for commerce and industry to absorb all the large blighted areas
in the south portions of the main business district which have been abandoned
by a shifting population nor can commerce and industry, which will expand by
reason of the anticipated influx of new population, absorb all the blighted districts.
Therefore, ways and means must be found and adopted for bringing about more
rational methods of urban development.
City's Growth Must Be Controlled. Whether or not it is desired,
Vancouver is faced with an inevitable invasion of new population by reason of its
geophysical environment, and the civic authorities, therefore, must recognize this
fact in any realistic plan looking toward the ultimate economic and social welfare
of the community. Future progress does not lie in the direction of the continued
rapid expansion of the present city, long associated in both Canadian and American
psychology with community progress, but rather in the readjustment and improve-
ment of present urban facilities, in relation to the city's population, looking toward
better schools and parks, streets and transportation, and pleasant attractive home
neighbourhoods.
The first step toward realization of this desirable pattern of urban growth is
the determination of how much population the city will probably have and where
it should be distributed. This information will serve as a guide in determining
policies and practices for the future activities of both officials and citizens. Next,
steps must be taken to bring about the most desirable population pattern through
controls and administrative policies such as the following:
i. Strict control over new development so that it will be confined to the area
allotted to future growth rather than scattered over unnecessarily large
areas which cannot be economically serviced.
2. Adequate protection of these new residential areas so that they will con-
tinue to be desirable places in which to live and thus prevent further shift-
ing of their population.
3. Rehabilitation of the older districts to arrest incipient blight and to restore
the residential amenities essential to desirable community life. The econo-
mic welfare of the Canadian city is dependent to a very great degree on
the conservation of these large areas of aging homes both from the stand-
point of the city and that of the individual property owner. Without
32
attention, these areas will continue to depreciate until eventually slums are
created. There is no reason why homes in well serviced neighbourhoods
should not continue to serve satisfactorily year after year with the proper
maintenance and modernization. As they become obsolete and too old for
economical repair, they can be torn down and replaced with new and modern
structures without disturbing the general neighbourhood character.
4. Gradual rebuilding and reclaiming through large-scale methods, of the
older blighted districts and slums for their most appropriate use.
These policies may seem a radical departure in urban development and growth.
Nevertheless, these principles merely provide a rational approach to the numerous
problems incidental to unplanned and haphazard conditions and substitute a definite
programme for the present uncoordinated activity. In any event, by making
provision for the regeneration of large areas of its blighted districts and by having
plans for its immediate needs and future growth, Vancouver will be in a very
favourable position in relation to any portion or all of the Federal programme of
post-war reconstruction.
Basis of Population Forecasts. A study of the population trends in the
City of Vancouver, past and present, is necessary in order that an intelligent
forecast of the future growth and rate thereof may be made. This forecast in
turn, is essential so that it may serve as a basis for the planning of the physical
improvement which would serve Vancouver's population of the future.
The metamorphosis of Vancouver from a tiny hamlet on the Pacific tidewaters
to a modern metropolis has an atmosphere of romance. Even at this date there
are many citizens whose memory can carry them back to the days of Port Moody,
Moodyville, and the early settlements on the south shore of Burrard Inlet which
are now within the downtown district of the present Vancouver.
This chapter of the Plan presents data regarding the population that can be
anticipated within the city during the next twenty-five years, the amount of area
necessary to accommodate this number, and the probable location or distribution
of the population. The recommendations are based upon past growth and trends, as
well as upon desirable standards.
PAST GROWTH
Amount of Past Population Growth. Table Number 12 shows the amount
of population in Canada, British Columbia, Greater Vancouver and Vancouver for
the census periods since 1871. Data are not available for the Vancouver area until
1901 since there were but a few hundred people living on the shores of the water-
ways, in the earlier periods.
33
—
36,247
—
17.2
49,459
36.5
11.7
98,173
9.5
9.0
178,657
81.9
30,296
—
29,432
34.2
392,480
119.7
152.242
319.0
130,847
344.4
22.0
524,582
33.6
213,641
40.3
163,220
24.7
18.1
694,263
32.4
324,581
51.9
246,588
51.1
10.5
817,861
17.8
373,413
15.0
275,353
11.6
Table 12
POPULATION GROWTH IN CANADA AND THE VANCOUVER AREA
Percent British Percent Greater Percent Percent
Year Canada Increase Columbia Increase Vancouver I ncreaseVancouver Increase
1871 3,689,257
1881 4,324,810
1891 4,833,239
1901 5,371,315
1911 7,206,643
1921 8,787,949
1931 10,376,786
1941 11.467,452
After incorporation in 1886, Vancouver grew very rapidly. Its rate of growth
is characteristic of all western cities, and of western provinces and states. It will
be noted that the rate of increase in the population of British Columbia, Greater
Vancouver and the city is very similar. Vancouver experienced the greatest rate
of increase in any single period- — between 1901 and 1911, 344.4 percent, but it also
experienced the smallest rate of increase — 11.6 percent between 1931 and 1941.
The Pacific coast states, California, Oregon and Washington, have had a corres-
pondingly rapid growth and the growth of many of their larger cities is similar to
that experienced in Vancouver. In contrast thereof, the Atlantic coast states —
Massachusetts, Connecticutt, New York and New Jersey — grew at a slower rate in
the same period. These states were more completely developed by 1871 and did
not experience the rapid growth that accompanies the opening and settlement of
new areas.
The Dominion's population has increased more slowly and with less variations
in the rate of increase for each census period. The growth has, however been
quite steady.
It is important to note that since 191 1 the population within the City of
Vancouver has represented between 31 and 35 percent of the total population in
British Columbia. In two of the census periods it represented 33 percent. The
growth of Vancouver is so closely allied with that of the Province that the local
urban population should continue, for many years, to be at least one-third of the
population in British Columbia.
Growth in Greater Vancouver Area. Plate Number 4 graphically shows,
by the vertical bars, the past trend of growth in each municipality of the Greater
Vancouver Area. The partly filled circles below the bars indicate the proportion of
the total population contained in each component part for each census.
The Plate clearly shows the concentration of population within the City of
Vancouver. None of the surrounding communities even approach the central city
in the amount of population. _ Burnaby has the largest population of the surround-
ing municipalities yet in 1041 it contained only about one-ninth as many persons
as Vancouver.
34
Plate 4
Plate 4
The Plate also reveals that Vancouver received a far larger amount of new-
growth during each census period than any of the other surrounding areas. For
example, the increase in Vancouver between 193 1 and 1941 was 28,760 while the
total increase in all of the other surrounding areas was only 19,957.
One very important trend is indicated upon the Plate, namely, that since 191 1,
the population within Vancouver has represented a decreasing proportion of the
total population in the Greater Vancouver Area. Although the city is growing and
has area to accommodate much additional growth, the surrounding areas are also
growing rapidly. The city is beginning to experience the trends of growth that
have prevailed for several decades in the older and larger metropolitan areas of
the United States.
The local growth of suburban communities is not an objectionable condition.
However, the trend does indicate the necessity for Vancouver to provide adequate
public facilities and services as well as to protect the desirable residential areas
so that persons will be encouraged to live in the cities rathei than move to the
suburbs. Likewise, it indicates the necessity of the suburban towns making plans
to properly accommodate their future growth and to coordinate these plans with
the central city. The preparation and adherence to properly conceived plans can
prevent many costly mistakes in the Greater Vancouver area of the future. Plate
Number 5 shows the distribution of the population of the Greater Vancouver area
according to the 1941 census.
Physical Factors Influencing Urban Growth. Many factors influence
the location of population within an urban area. Among the more important are
physical conditions, such as topography, large public areas, industrial and commer-
cial development. The location and character of new subdivisions affording home
sites are also important factors. Likewise the location of streets, transit routes and
other urban facilities such as sewers and schools play an important part.
Plate Number 6 shows the location and extent of the major physical factors
affecting urban growth in the Vancouver Area. Population first located near the
water and here were the early trading centres. As the population increased the retail
business expanded and is now the focal centre of the area. Industries developed
around this business centre especially along the harbour, and in the nearby valleys
such as False Creek. These in turn attracted residential developments and as both
the commercial and industrial areas grew the residential sections extended outward
as will be seen in later plans, following main lines of growth especially along transit
routes and well improved streets.
The plan reveals the location of the more rugged portions of the urban area.
Portions of the city, especially in the west, southeast and eastern sections have
grades of from 10 to 25 percent and substantial portions have grades of from 5
to 10 percent. The latter are desirable for residential development in that they
provide variety and interest and the steeper grades are not always objectionable
although they' usually result in a lower density of population. The area east of
Vancouver is comparatively rugged and in general, will have a low density of
population. In the main the topography of the area is most desirable for developing
a large metropolis.
35
36
38
There are a large number of public open areas within and near the city. While
they will affect the population pattern by not being available for homes, they will
also have beneficial influences by providing permanent open spaces that are so
essential in residential sections.
A stud}- of the street, sewer and water improvements made since 1928 reveal
that these are keeping pace with new home building. (Plate Number 7). Exten-
sive sewer improvements have been made in the areas west of Dunbar, in the area
west of Granville and south of 41st Avenue, in the area south of 13th Avenue,
between Ontario Street and Victoria Drive and in the northeastern part of the
city. Water mains have been extended in these general sections frequently beyond
the areas equipped with sewers. The extension of water mains is especially
pronounced in the southeastern portion of the city. The city has made excellent
progress in the provision of these essential facilities.
VANCOUVE R
BRITISH COLUMBIA
VANCOUVER
TOWN PLANNING COMMISSION
Jf
NEW LIVING UNIT5
IN SOCIAL AREAS
FROM I 3 JULY 1941
TO 3^ AUG* 1944
20 LIVING UNITS
H Ml AND 8»RTM01Q«EW
t ASSOCIATES
TOWN PL»NNtBJ
39
Plate 8
New Living Units. Plate Number 8 graphically shows the number of new-
living units erected in the social areas during the period of rapid growth between
1941 and 1944. The growth has been exceptionally well spread throughout the
entire city. The only districts in which there was practically no growth were those
containing the central business district and the industrial areas immediately east
of False Creek. It is especially encouraging to note the new units that have been
erected in the apartment district between the business centre and Stanley Park.
While this is an older section it is continuing to grow and should eventually be a
heavily populated and valuable portion of the city.
Much new growth has located in the northeastern portion of the city.
This has undoubtedly been partly influenced by the location of the water services
previously discussed.
It is gratifying to note that many of these new living units have been erected
upon many of the isolated vacant lots, that have been serviced with public utilities
for many years. The building up of these vacancies have made a great improve-
ment in the blocks in which they were located.
Population Growth in Social Areas, 192 1- 1943. In the United States
Census of 1940, the population of fifty-two American cities was enumerated by
Census Tracts, permanent units of relatively similar population elements and land
use, instead of by enumeration districts, variegated as to population and land usage,
and seldom the same in area for two census years. Canadian census officials
recognized similar tracts, called "Social Areas", for Vancouver and Winnipeg at
the time of the census of 1941, and information was collected on this basis. The
Social Areas to the scientific student of the city, is a research tool analogous to
the astronomer's telescope and the botanist's microscope. The continuing collection
of data by Social Areas, the sorting of these materials by Social Areas, and general-
ization on the basis of Social Areas, w^ill increase our understanding of the modern
city, and will provide a sound basis for guiding its future development.
The trend of growth in each of the above areas for the census years since
1921 and for the year 1943 are graphically shown on Plate Number 9. The data
for 1943 were obtained from the Wartime Prices and Trade Board through the
distribution of Ration Books in September, 1943.
In 1 92 1 a large portion of the city's population was within and near the
central business district, around False Creek and in the districts lying southeast of
the Creek. There was very little population in the southwestern portion of the city.
Between 1921 and 1931 a substantial portion of the new growth occurred in
the southwestern and northeastern portions of the city. This was a logical devel-
opment of desirable residential sections that were accessible to the business centres
and it was also a logical extension outward from existing development.
Between 1931 and 1941 the growth was reasonably well distributed in all
sections although it was somewhat predominate in the western portions and especially
in the area west of the business district. The distribution for 1943 shown on this
Plate further substantiates the preceding study showing that the growth between
1941 and 1943 was also well distributed throughout the entire city.
-10
Plate 9
Only two portions of the city have lost population in any decade. This is the
central business section and the area immediately to the east. This is only logical
since portions of these districts should logically be absorbed for commercial and
industrial purposes thus displacing residential units. It will, however, be noted that
some of the areas around False Creek have not evidenced any marked increase in
the past few years. These are the older developments and every effort must be
made to maintain or improve the residential environment so that these districts will
continue to provide desirable living conditions and that the population will not move
therefrom to the newer and more outlying districts.
Population Densities — 1921, 1931 and 1941. For the purposes of this study,
population density is referred to as the average number of persons per gross acre in
any section of the city. The gross area includes land occupied by streets, schools,
scattered commerce and industry, as well as by residential development, but does
not include large public open areas or districts occupied almost exclusively by
commerce or industry.
The density of population within any urban area has an important bearing upon
the economic welfare of the community. Experience has revealed that it is quite
expensive to provide the necessary public improvements and services in sections
containing an average of less than ten persons per acre unless the residential devel-
opment is of a very high character. This is an average of only two and a half
houses per acre and an excessive amount of paving, sewers, water and other similar
facilities are needed to insure satisfactory standards for fewer homes. On die
other hand, if the population is very dense, there are usually inadequate yards, light
and air and the population eventually moves therefrom.
Plate Number 10 shows the density in the various social areas for the years
1921, 1931 and 1941.
The figure within each circle indicates the actual density within the social area
for each census period.
Much of the city contained a density of less than ten persons per acre in 192 1.
Only six areas exceeded this density although there were several containing an
average of from seven to nine persons per acre. The central business district and
the areas immediately to the west and east contained the highest densities, being
respectively 47, 30, and 28 persons per gross acre.
By 193 1 a minority rather than the majority of the city had an average
density of only five or fewer persons per acre. Likewise the densities had in-
creased in the central business areas and in the tracts to the east and west. This
Plate further indicated how the growth spread progressively outward, with an
elongation along certain main routes such as Kingsway in the southeast and Gran-
ville in the south central portion.
In 1941, only five tracts had an average gross density of less than five persons
per acre, and about one-half of the city had a density of ten or more persons per
acre. It should be further noted that in some of the tracts then having a low
density that the development was fairly compact. If only the developed portion
41
VANCOUVER
BRITISH COLUMBIA
POPULATION DENSITY
1921
193!
1941
VANCOUVER
TOWN PLANNING COMMISSION
19 44
OAKLAND BARTfiOlOMEVi
4 A550CIATtE.
TOWN Pl_AN*.C*S
Plate io
42
of the area were considered, the density would probably exceed ten persons per acre,
but the large amount of completely vacant areas results in a lower average density.
For the first time, the year 1941 reveals a decrease in the density within the
business district. However, the apartment district immediately to the west revealed
a steady and substantial increase for each of the three census periods. This area
is zoned to accommodate a considerably higher density than has ever been
approached in the past and present trends of development.
Summary. Vancouver has experienced a phenomenal population growth.
There are many indications that it will have a healthy and extensive growth in the
future but its rate of increase will be less rapid than in the past. Furthermore,
the Greater Vancouver area rather than the central city alone should experience
a large future growth.
The distribution of population has in general been sound. With the growth
moving progressively outward rather than predomination in any single direction.
(See Plate Number 5, Page 36).
The density of population is rather low for such a large city and a compara-
tively low density can be expected in the future because of the topography and
the dominant use of single family homes. It is thus important that development
absorb vacant property before it moves to other sections. This is especially true
of the vacant lots than are equipped with paved streets, sewers and water.
Otherwise a \ery expensive population pattern will result.
Amount of Probable Future Growth. It is always difficult to make
accurate forecasts of future population growths, since so many unpredictable factors
affect the rate of increase. For example, the economic depression occurring between
1 93 1 and 1 94 1 resulted in the slowest rate of growth that Vancouver had exper-
ienced since its incorporation. In contrast, the war effort resulted in a very rapid
influx of population. Reasonably close estimates may, however, be made over a
period of 25 or 30 years since the periods of rapid and slow growths are generally
balanced over the longer period.
Statisticians agree that the United States is approaching a stationary popu-
lation. It is believed that the maximum growth will be reached about 1970 to 1975
and thereafter, there will be little, if any, gain. As a result, many of the older
and larger cities will not experience much additional growth. In fact, there is
little, if any, growth now in some of the older cities, and substantial improvements
must be made if these cities are to retain their present populations.
British Columbia and Vancouver are comparatively new areas. The preceding-
section indicated that there were many reasons why they should experience much
new growth. There will be many advantages, however, if this growth is steady
and substantial, rather than if it is concentrated within comparatively short intervals.
Plate Number 1 1 graphically shows the estimated future population of British
Columbia, Greater Vancouver, and Vancouver. The Plate also shows the past
growth in other portions of Canada and in the United States.
43
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COLUMBIA -
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CENSUS
YEARS
POPULATION GROWTH
VANCOUVER
TOWN PLANNING
COMMISSION
1944
44
HARLAND BARTHOLOMEW
t ASSOCIATES
TOWN PLANNERS
Plate 11
FUTURE DISTRIBUTION
POPULATION
LEGEND
•-50 PERSONS 1941 POPULATION
-50 PERSONS FUTURE POPULATION
TOTAL POPULATION SHOWN -455,000
HARLAND BARTHOLOMEW £^ ASSOCIATES
TOWN PLANNERS
Plate is
The estimated 197 1 population of British Columbia is 1,400,000, an increase
of about 600,000 over 1941 or nearly 200,000 more than the numerical increase since
191 1. The population estimate for Greater Vancouver for the same year is 650,000
and for the City of Vancouver is 455,000. These figures may appear low after the
rapid growth of the past and some of the optimistic estimates for the future.
However, they represent a continued increase in growth of approximately 20 percent
each decade which is a very rapid rate for any city now having 300,000 or more
persons.
Furthermore, this provides a sound procedure for Vancouver. There is so
much single family development that improvements can be planned without any
fear of over congestion. In fact, the major problem is to provide enough facilities
such as schools and parks in proper locations rather than to provide unusually
large facilities. Maximum economies will result if these facilities are fully used.
The future growth is a matter of concern to the entire metropolitan area rather
than to Vancouver alone. There is adequate area to accommodate a far greater
population than the one estimated by 1971. The important condition is that it
extend progressively outward from the central city rather than to scatter widely
over the entire area. It is believed that the Vancouver area will continue to grow
after the estimated population has been reached. This would require the extension
of the Plan beyond the present area rather than the making of any substantial
changes within the then existing development.
Distribution of Future Population. The estimated future population of
455,000 persons within the City of Vancouver can be conveniently accommodated
within the present corporate limits. The area is approximately 44 square miles or
28,160 acres and to this should be added the area of the University Lands that
are available for residential development — about 2,700 acres. This results in a
total area of 30,860 acres. The average density for the future population would be
slightly less than 15 persons per acre, a very desirable density.
While a large growth can be anticipated outside of the present corporate
limits and within the Greater Vancouver area, there is a large amount of land
available for urban development. In fact, the available area is between four and
five times as much as is contained in the present city. However, since only about
200,000 is estimated to be located outside of the central city by 1971, it is obvious
that only a comparatively small portion of the total area will be needed for urban
development. If this population is developed at an average density of ten persons
per acre, about 20,000 acres would be required to accommodate it. Actually the
population will probably not average ten persons per acre in the outlying area
although ever}- attempt should be made to achieve this density. If the average
future density is only five persons per acre, about 30,000 acres would be required.
This is approximately the same amount of area found within the City of Vancouver
and the University Lands.
It is especially important that, in addition to securing a satisfactory density
in the outlying area, the population spread progressively outward rather than to
scatter over the total suburban area, which is four or five times as large as the
City of Vancouver. If it is permitted to scatter indiscriminately, leaving large
45
intervening tracts and many vacant lots in each block, there will either be inade-
quate public services and improvements or the cost of supplying same would be
excessively high.
Plate Number 12 shows the desirable distribution of the future population
within the City of Vancouver. It will be noted that this closely follows the 1941
pattern, the major changes being that the areas now containing scattered population
are more completely developed and there is also a greater concentration of popula-
tion in the older portions of the citv.
The greatest concentration of population will remain around the English Bay
and the False Creek areas which are closest to the downtown business district and
which now contain the highest population densities. These areas are now zoned
for multiple dwelling uses. It is logical that these intensive uses should be located
where the land is more valuable. Furthermore, these areas are close to sources of
employment, shopping and amusement and thus are logical locations for this great
concentration of population.
A smaller amount of population has been distributed in the areas containing
the rougher topography but these districts should contain some residential devel-
opment. No population is shown in present areas or in tracts which should logi-
cally be absorbed by industrial development. The population pattern is general
only, and no attempt has been made to keep it out of blocks that may ultimately be
absorbed by schools, parks or other public areas. The acquisition and develop-
ment of these areas for non-residential purposes will cause some minor adjustment
in the distribution but, in general, the pattern can be very closely followed in the
future.
The proposed population pattern will form an important basis for making
recommendations regarding future improvements, such as the location of schools,
parks, transit lines and other public facilities necessary to serve the future city.
It provides a sound method for determining the location and extent of these facilities
so that they can adequately, yet economically, serve the future citizens.
Density of Future Population. Plate Number 13 shows the population
density in each social area of the City of Vancouver that would result from the
proposed distribution pattern.
It is expected that the density in the central business district will continue to
decrease as more and more property is absorbed for commercial and industrial use.
However, the West End should have a very high density containing an average
of about 80 persons per gross acre. This is an outstanding location for multiple
dwellings and an extensive apartment development will result in this district which
will add great value to the city.
Likewise there should be an increase in density in the districts located south
and east of the False Creek area. A population density of at least 30 persons per
acre in these areas would be both sound and desirable. Such a density could easily
be obtained under the present zoning regulations.
It will be noted that only two sections of the city would have a population
density of less than ten persons per acre. These contain some of the more rugged
46
47
property and are in the outskirts of the city. All other portions would have a
density that would insure the efficient and economical provision of facilities and
services.
Method of Securing Future Population Pattern. There is no simple
easy method of securing the desirable future population pattern. However, there
are so many advantages that can accrue from this pattern that every effort must
be made to achieve it. Among the more important present methods of achievement
are:
i. Adherence to the recommendations regarding physical improvements that
will be made in the revision of the Vancouver Town Plan. If the improve-
ments are gradually made in the future so that all sections of the city are
properly provided with adequate streets, transit facilities, schools, parks,
sewers and water, there will be every incentive for homes to be built around
these facilities rather than to be located in some other sections where
such facilities are not available. This is the most important and basic
method of securing a sound urban development.
2. Control of Subdivision. Future subdivision, both within and outside the
city should be carefully controlled so that it will conform to the Compre-
hensive Plan and to the population pattern. Many American cities have
adopted subdivision regulations requiring the instalment of all improve-
ments such as streets, sewers and water, before any lots can be sold. This
tends to restrict new developments to areas where there will be an imme-
diate demand for the lots and to locations adjoining existing facilities.
Legislation enabling somewhat similar control of subdivisions in the Van-
couver area should be considered in future.
Since the only areas outside of the city proper that can be urbanized
consist of incorporated municipalities, these local agencies should also
prepare town plans and carefully regulate the subdividing of their areas.
Such a policy would not only benefit Vancouver but would be a primary
benefit to each individual municipality.
It should be understood that any subdivision control is not intended
to restrict individual enterprise in the development of new areas, but rather
to insure that such new development will conform to desirable minimum
standards. Otherwise, the public agency will eventually be called on to
provide these necessary minimum improvements and if the population is
widely scattered in the subdivision, the cost of such installations will be
unnecessarily high. The regulatory measures benefit all tax payers who
otherwise will be forced to bear a part of the cost of the improvements.
3. Miscellaneous. It is most important that every effort be made to protect
the existing development so that the population will not desire to move to
another zone. Zoning regulations and building codes are among the funda-
mental steps necessary to insure such protection. Likewise certain older
and blighted portions of Vancouver may eventually be rehabilitated or
rebuilt for large scale housing projects in the future. This will encourage
48
many persons to continue living therein. It is also essential that citizens
maintain interest in their property and keep it properly repaired.
4. Citizen Interest and Support. The success of a planning programme,
or part thereof, ultimately depends upon citizen understanding and sup-
port. It is thus particularly essential that a large number of citizens in
Vancouver area understand the problems that now confront the city. They
must also be generally conversant with measures necessary to solve these
problems and give support to the public officials initiating the necessary
steps.
Thus the problem of achieving an economic and desirable population pattern
requires understanding and support on the part of both officials and citizens. Dif-
ficult problems will be encountered but the}' are not impossible of solution and the
objective warrants consistant and extended effort.
49
PART III
NATURAL RESOURCES OF BRITISH COLUMBIA
BRITISH COLUMBIA— VANCOUVER'S HINTERLAND
The Province of British Columbia forms the western seaboard of the Dominion
of Canada, and has an area of 372,630 square miles. It lies between the 49th and
60th parallels of north latitude. Its western boundary is the Pacific Ocean for the
south, and Alaska for the north portion. The eastern boundary lies along the con-
tinental divide, the summit of the main range of the Rocky Mountains, from the
49th parallel of north latitude to the 120th meridian of west longitude, thence north
to Yukon Territory. It is the third largest and is one of the most spectacular of all
the provinces of the Dominion.
The major portion of the province consists of a series of mountain ranges and
valleys which run in a north westerly direction from the International Boundary.
The Rocky Mountains also form the western boundary of the Great Central Plain
of North America. The lowest passes through this range, lie in Canada.
West of the Rockies and parallel to them is the Selkirk Range which is of an
earlier geological formation. West lies the interior plateau at an elevation of
approximately 3,500 feet. This plateau is broken by a few short mountain ranges
and by valleys caused by the erosion of ancient rivers. Between the interior plateau
and the Pacific Ocean lies the Coast Range. All along the coast, this range is
deeply indented with fjords. The north eastern portion of British Columbia lies
east of the Rockies to the 120th west meridian and is an extension of the North West
Plains.
British Columbia's terrain is more broken than any of the other Canadian
Provinces.
NATURAL RESOURCES OF BRITISH COLUMBIA
Vancouver has grown mainly by virtue of being the first seaport on the Pacific
Coast of Canada having rail connection with the rest of the Continent. As stated, in
the main its hinterland consists of a rugged mountainous country but there are
also extremely fertile valleys. Furthermore, in addition to British Columbia's Peace
River Plains beyond the Rocky Mountains, there is an opportunity of economic
trade with Alberta and parts of Saskatchewan, Yukon and Mackenzie.
British Columbia's area of 372,630 square miles, is over 17 percent larger than
the combined Pacific Coast States — California, Oregon and Washington. It has
been estimated that some 266.770 square miles (70 percent of British Columbia's
50
total) is suitable for the production of food stuffs, 10 percent is arable land, and
there are some thirty million acres of grazing land. It is estimated that there are
nearly four million acres of grassland or meadowland.
British Columbia has 93,225 square miles, 25 percent of its total area, below
the 2,000-foot level. In the combined states of Montana, Idaho, Oregon and
Washington, but 84,626 square miles, 21 percent of the total area, are below this
elevation.
The mountains, circumscribing though the}' may be from the viewpoint of
arable land, are extremely beneficial to Vancouver and British Columbia as a whole.
Owing to the munificent alliance of mountain and sea, British Columbia is
a land of unsurpassed grandeur, and both are a source of abundant resources —
fish and aquatic fur-bearing animals from the sea: and timber, metals (ferrous,
precious and semi-precious) and coal, (bituminous and semi-anthracite) and game
and fur-bearing animals from the mountains. These resources are incomparable
from the standpoint of variety, quality and quantity.
The mountains and sea have in them an unexpendable natural resource in
the scenery, which combined with the fish and game, will attract tourists which in
turn create new money for the province.
*Water Power. The mountains and sea unite to form a continuous cycle of
energy (water-power) service. This Province is richly endowed with great rivers
and lakes of varying magnitude. The rivers supply water for hydro-electric develop-
ments, irrigation projects and domestic purposes and in addition, are sources of
game and commercial fishing. The lakes, which range from a few acres to over
300 square miles in area, provide excellent reservoirs.
All streams flow and other hydrometric investigations have been conducted
by the Dominion Water and Power Bureau of the Department of Mines and
Resources. The Provincial Government's Water Rights Branch of the Department
of Lands and Forests administers all the water resources in the province.
At the beginning of 1945 British Columbia had 864,024 installed horse power
and is the third largest in Canada in developed power being exceeded by Quebec
and Ontario. The latest estimate relative to the undeveloped waterpowers of
British Columbia indicate that there are 7,023,000 horse power at ordinary mini-
mum flow and 10,998,000 horse power available for six months of the year. These
power estimates are based upon continuous 24-hour power at 80 percent efficiency.
On this basis British Columbia is second only to Quebec in potential hydro-electric
power, the comparison with other provinces being as follows:
* Data supplied by the Dominion Water and Porver Bureau, Department of Mines and Resources.
51
AVAILABLE AND DEVELOPED WATER POWER IN CANADA — JANUARY 1, 1945
Available 24-hour Power
at Sor'c Efficiency
Province
Turbine
Installation
At Ordinary At Ordinary Six H.P.
Mill. Flow H.P. Months Flow H.P.
BRITISH COLUMBIA 7.023,000 10,998,000 864,024
Alberta 390,000 1,049,500 94,997
Saskatchewan 542.000 1,082.000 90,835
Manitoba 3.309,000 5,344,500 422,825
Ontario 5.330,000 6,940,000 2,673,443
Quebec 8.459.000 13.064,000 5.848,572
New Brunswick 68,600 169,100 133,347
Nova Scotia 20.800 128,300 133,384
Prince Edward Island 3,000 5,300 2,617
Yukon and Northwest Territory 294,000 731,000 19,719
Canada 25,439,400 39,511,700 10,283,763
There are undoubtedly many other possible developments in unexplored regions
of the province. Due to topographical conditions the power possibilities range from
low heads of only a few feet to high heads of over 2,000 feet. There are a number
of high head sites on Vancouver Island and coastal regions, where precipitation is
heavy, in a few places exceeds 200 inches yearly, which are admirably located for
economical development adjacent to tidewater facilities.
Many favourable medium head sites of great potential value are located on
the larger rivers, among them being the Fraser (2,500,000) potential horse power
on five sites), Columbia, Nass. Skeena, Stikine. Peace, Liard and their main
tributaries.
The Columbia River rises in British Columbia and flows through the United
States and British Columbia before reaching the Pacific Ocean between Oregon
and Washington. The development of this river and its main tributaries, the
Kootenay, Pend d'Orielle, Flathead, Movie. Kettle. Okanagan and Similkameen
Rivers, for the purposes of power, water supply irrigation, reclamation, naviga-
tion and recreation, is therefore, of international interest.
The potentialities of the Columbia River basin were considered to be of such
magnitude and importance that in 1944, the Governments of Canada and the United
States referred to the International Joint Commission for investigation and report,
the problem of determining what further developments, beyond the many projects
which have been developed in the Columbia River basin over the past fifty years,
of the water resources of this river and its tributaries from source to mouth, would
be practical and in the interest of the public of both countries. This investigation,
which will involve a tremendous amount of carefully planned work and study, is
now well under way.
52
c
TOWN P
LEGEND
■■!'%• i •-. uiU •
unm
A 1 *«c
.<,■-. t
p««»
E3
MIWUVUI
. — ■ —
FUllV DEVELOPED
H.I!
(?)
fAlflAllY OtVELOFED H.f
<D
fOTEMTIAL H.F. (?)
(xooo MOfsi-'owfi jdn;i
MAP SHOWING
WATER POWER
SOURCES OF INFORMATION -
DOMINION WATER (- 'OWtl »U«t»U
rroVINCIAL WATER R1GHT5 6RANCH
BRITISH
COLUMBIA
VANCOUVER
TOWN PLANNING COMMISSION
9 44
I MARIANO BARTHOLOMEW fe ASSOCIATES
' ~R5
TOWN PLANNERS
Plate 14
Plate 15
British Columbia, like the western states of America, is subject to meteoro-
logical conditions which cause most streams to be erratic in their flow. Thus storage
basins are essential to conserve water to regulate the flow in order to develop the
maximum power potentialities. Storage-sites are not always available and occasion-
ally, when they are present, they are costly to construct. Thus, although operating
costs of hydro plants are low, they are frequently offset by the high capital shares
which have a permanent effect on the cost of the service.
Plate 14 shows the sites of the developed and potential water power of the
province. It will be noted there is an abundance of potential power still to be de-
veloped in the areas contiguous to Vancouver.
The British Columbia Power Commission was created by the Provincial
Government in 1944 and is now engaged in extensive operations in the more settled
areas. Undoubtedly, the Commission will proceed as rapidly as possible with the
electrification of many rural districts.
Forestry. There is a synonymy with British Columbia and Forestry — one
can scarcely think of the one without the other. The forestry industry is the prov-
ince's first primary producer.
The estimated value of production in the forest industries in British Columbia,
including loading and freight, for 1944 was $146,61 1,000. The four-year average,
1 94 1 to 1944, was $127,421,000. As in many other industries, the lack of
experienced labour and shortage of materials and equipment has slowed down the
output of logging operations.
The following list shows the forest products, the values for which the Forestry
Department has records: lumber; pulp and paper; shingles; boxes; doors; piles;
poles, and mine props; cordwood, fence-posts, and logging; railway ties; laths and
other miscellaneous products; logs exported; pulpwood exported; Christmas trees:
cascara bark and additional value contributed by the wood-using industry.
In 1944 the Christmas tree industry was valued at $236,000 and the collec-
tion of cascara bark amounted to $90,000. The bulk of the world's supply of
cascara is grown in British Columbia, the balance coming from north-western
Washington.
Within recent years, the Provincial Government has recognized that it is of
vital importance that forestry and allied industries should be organized on a perma-
nent sound basis under Government auspices in order to maintain a continuous
production on a maximum scale. To this end, many permanent Provincial Forests,
each of considerable extent, have been created and several reforestation nurseries
have been established.
The Provincial Forestry Department has carried out considerable air survey
operations and forest survey field activities but these services were suspended for
the duration of the war. It has a very efficient organization for the protection of
forests against fire and insect damage. It also has the development and care of
the Provincial Parks within its jurisdiction and undertakes soil analysis and
forestry research.
53
The Government has considered its forests and their preservation of such im-
portance that a Royal Commission on Forestry was recently appointed and is now
in session. Its findings and recommendations will no doubt be such as will assure
posterity a continuous "Forestry" future in all its ramifications.
Forestry industries have set aside vast sums to carry out their post-war pro-
grammes. It is estimated that, due to the enormous demand for forest products to
reconstruct devastated Europe, it will be several years before the full requirements
of building material will be available for domestic use. This alone will assure a
market for a long time.
It is estimated that 95 percent of the total softwood reserve in the British
Empire is located in Canada and British Columbia holds one-third of this. New
chemical discoveries which will move softwoods to the category of hardwoods,
promises much for this resource alone.
The field of cellulose products for the manufacture of artificial silk and plas-
tics is beyond computation.
Plate Number 15 shows the timbered and agricultural areas of British
Columbia.
Mining. (Plate Number 16.) Fur trading was probably the first industry
in the province but it was the discovery of placer gold that brought the first influx
of pioneers. After the placer diggings were worked out, the search for the "mother
lode" led to the discovery of mineral ore bodies of many kinds. Over the years much
wealth has been taken from British Columbia mines.
However, the mining industry has been very severely curtailed by the war —
lack of manpower and shortage of supplies and materials — but nevertheless the
total value of minerals produced in the province in 1944 was $54,923,802. In 1943
it was $65,892,395, some $9,658,000 lower than in 1942. Mining is second in value
of production of British Columbia's industries.
On the other hand, war requirements have increased the production of the base
metals of which this province is now established as one of the largest producers in
Canada. Vast quantities of lead and zinc, together with miscellaneous metals,
including gold, silver, antimony, cadmium, bismuth, and more recently tin, a very
crucial and valuable element in Canada's war effort, have been mined at Kimber-
ley. Other lead-zinc producing mines are at Zincton, Silverton, Retallack and
Field. Britannia Mines on Howe Sound, just 25 miles from Vancouver, one of the
largest copper mines in the British Empire, and the Granby Mine at Copper Moun-
tain, are very important producers of copper. Both ship their concentrates to
Tacoma smelter, and the metal is sold in the United States.
The urgency of the demands of war has proved that British Columbia can
produce many other metals of the so-called "strategic group". Mercury has been
produced at Pinchi Lake and Takla Landing. In 1943, the former produced
1,690,240 pounds of mercury, valued at $4,599,200.
Tungsten, chromium, manganese and molybdenum have been mined in varying
quantities at several points in the province. Nickel has been mined at Choate,
54
c
TOWN
LEGEND
.,■.,,..,, IT*UHK) _^^_____
MAIN <iv(H _
HM oeeuMctcts gold
MAP SHOWING
MINING
AREAS
BRITISH
COLUMBIA
VANCOUVER
TOWN PLANNING COMMISSION
9 44
HARLAND BARTHOLOMEW & ASSOCIATES
TOWN PLANNERS
Plate 16
cobalt occurs in the Bridge River area and also, in association with arsenical gold
ores, in Hedlev district. Fluorspar has been found at Grand Forks and near Kam-
loops, vanadium on Quadra Island, barium in high quality in East Kootenay and
mica, asbestos and quartz crystals in a number of different places.
Iron ore deposits along the lower Coast are now being investigated with the
intention of establishing an iron and steel industry in British Columbia. Bitumi-
nous coal occurs in large quantities mainly near Xanaimo, Princeton, Fernie and
in the Omineca and the Peace River areas. A large deposit of semi-anthracite coal
has been awaiting development in Groundhog Mountain in northern British
Columbia.
The basic industry in the province most adversely affected by the war is that
of gold mining". Gold which was one of the prime factors in the settlement and
development of British Columbia has ever been the "backbone" of mining especially
during the depression years. For this reason it is known as a "hard times" industry
and it has always proved to be a very valuable stabilizer in industry. Since the end
of 1941, no less than 18 gold mines have been forced to close down and in 1944 only
seven gold mines with mills were operating". Those mines still producing are oper-
ating on a very reduced scale, some of them having scarcely enough men to keep
open.
The value of gold production in British Columbia (lode and placer) increased
year by year until 1940 — the peak year — and on account of war conditions it has
declined very rapidly as may be noted from the following:
Year Value of Gold Production
1940 $23,698,444
1941 23,370,463
1942 18,155,715
1943 9,101,786
1944 - - 7,547,30g
The British Columbia and Yukon Chamber of Mines has maintained a highly
efficient Mining Bureau in Vancouver for many years. It has been a boon to
investors as much valuable information pertaining to all phases of mining is
disseminated.
The present conditions obtaining are but temporary and as soon as men and
materials are available, there will again be great activity. Mining, especial!}'
gold mining, will offer a good opportunity for post-war rehabilitation of large
numbers of men.
Placer, the one phase of mining that can be successfully carried out by small
companies or individuals, and the factor that brought British Columbia's original
settlers, has a large field for prospecting, especially in the vast unexplored regions
of the north. Yukon Territory and the Atlin country have yielded fabulous quan-
tities of placer gold and all indications point that, from geological formation and
similar conditions of the adjoining country, another "Klondyke" may develop.
It is anticipated that in the post-war years there will be a large demand for
copper, lead and zinc for use in the rebuilding of devastated areas in various parts
of the world.
55
White and coloured marble and a good quality of sedimentary rock for grind-
stones used in the pulp industry and for the commercial trade, are ready for
quarrying on the south Coast.
Oil has been prospected for in the Peace River country but no definite reports
have been received.
The ubiquitous and ever optimistic prospectors are most essential, for without
their unceasing search for earth's hidden treasures, the mining industry would
soon lag and become almost non-existent.
From present indications, there will be a great influx of new capital for mining
development after the war. Large eastern Canadian and American companies have
sent prospectors and engineers into British Columbia to acquire properties for
post-war operations. The construction of the Alaska Highway has opened up a
vast rich mineral-bearing area that is attracting wide-spread attention as a promis-
ing field for prospecting. The Chamber of Alines has conducted annual winter
sessions for the training of prospectors, wherein instruction is given by eminent
mining authorities in geology, mineralogy, prospecting, preliminary mine develop-
ment and ore testing in the field.
'&
These and many more unmentioned, are reasons for the belief that mineral
production in British Columbia and Yukon will be greatly expanded in the post-
war years. A healthy mining industry means new wealth to many outlying com-
munities that depend mainly on mining for their existence and it is the business
derived from this development that reflects greatly on the prosperity of the
province's main distributing centre, the City of Vancouver.
Agriculture. British Columbia's third industry is Agriculture. It embraces
grain, tree and small fruits, vegetable growing, horticultural, dairying, stock and
poultry raising, hop-growing, bee-keeping and many other branches.
The total gross value of agricultural production in British Columbia in 1943
was $86,917,546, iyY2 percent greater than in 1942, and it also exceeded that of
any previous year.
The production of all fruits in 1943 amounted to 122,100 tons, valued at
$13,148,700.
The following Table indicates the volume and value of the principal fruit
crops for 1942 and 1943:
56
'94?
Fruit Volume [tons)
1943
I'aluc
Volume (tons) Value
$7,637,384
93,898
$7,800,479
\S2.32n
1,663
113,109
809,040
7,071
741,621
121,20b
1,285
145,829
289,439
4,261
594,464
876,286
4,825
680,233
226,744
622
101,738
525,563
2,613
941,962
693,089
1,746
735,063
441.435
2,619
870,483
57,955
483
111,471
154.268
656
153,391
Apples 121,975
Crab-apples 3,041
Pears 7,979
Plums 1,462
Prunes 3,014
Peaches 9,578
Apricots 2,438
Cherries 2,279
Strawberries 3,676
Raspberries 1,999
Blackberries 413
Loganberries 975
Bush-fruits 1,909 205,824 1.079 138,923
The aggregate of all vegetable crops for 1943 was 94,854 tons valued at
$6,385,245. 123/2 percent greater in volume and 43 percent greater in value than
in 1942. The principal commercial crops were potatoes, beets, cabbages, carrots,
corn, turnips, parsnips, spinach, broccoli, asparagus, celery, lettuce, rhubarb, etc.
The total area of the principal field crops in the province in 1943 was estimated
at 534>9°° acres, a decrease of 10,400 acres under 1942.
The following Table shows the volume and value of the production of grains,
fodders and roots for 1942 and 1943:
Product J'olume 1942 I'aluc 1'olume 1943 Value
Grains 7,743,000 bushels $ 4,746,000 6,926,000 bushels $ 4,922,000
Fodders 820.000 tons 9,452,000 681,000 tons 12,922,000
Field Crops 18,244,000 22,256,000
Grains from British Columbia have been awarded first prizes on several
occasions at the Chicago Grains Exhibitions in world competition. All but one
of the awards were for Peace River grains — the one exception was for grain from
Lulu Island.
The totals for dairy products for the years 1942 and 1943 are as follows:
Product Volume 1942 Value Volume 1943 Value
Dairy Butter 2,557,500 lbs. $ 716.100 2,260,000 lbs. $ 678,000
Butter— Creamerv 5,357,027 lbs. 1,896,075 4,874,787 lbs. 1,747,018
Cheese 879,787 lbs. 179,730 718,063 lbs. 155,004
Evaporated Milk 603,467 cases 2,413,868 549,733 cases 2,308,878
Ice Cream 1,412,705 gals. 1,612,348 1,669,659 gals. 1,842,211
Fresh Milk 23,525,000 gals. 8,704,250 26,100,000 gals. 9,657,000
It is of interest to note that the University of British Columbia acquired a
young milch cow in 1929, which during her lifetime of 18 years produced over
137,000 pounds of milk and over 5,800 pounds of butter-fat — surpassing all known
records.
57
The following indicates the numbers and value of live stock and poultry for
1942 and 1943:
1942 i943
X umbos Value X umbers I'alue
Horses 62,000 $ 5.022.000 62.170 S 6,428,000
Milk Cows 92,500 7,215,000 93,700 8,058,000
Other Cattle 236,500 12.061,000 282,300 15,203,000
Sheep 125,500 1,162,000 132,000 1.475,000
Hogs 82,000 1,550,000 89,800 1,439,000
Hens and Chickens 2,968,000 2.820,000 3.561,600 4.452.000
Turkeys 53,300 165,000 46,300 155.000
Geese 7,000 16,000 8,500 24.000
Ducks. 18,600 19.000 10,300 14.400
Eggs 22,376,000 doz. 24,041,000 doz.
A hen bred at University of British Columbia attained a world's record in
1929-30 with the laying of 351 eggs in one year. This was the highest record at
that time but since then hens at Port Kells and Sardis in the Fraser River Valley
have bettered the former record, each with 357 eggs. This performance has never
been equalled.
The following Table shows the volume of miscellaneous production for 1942
and 1943:
'?•/-' 1943
Product Volume I'alue Volume I'alue
Honey 1 ,333,600 lbs. $280,100 1.275.760 lbs. $197,743
Wool 507,000 lbs. ■ 130,000 548.000 lbs. 141,000
Hops 1.202,7001bs. < 55%c per lb.) 1.554.800 lbs. (70c per lb.)
Tobacco 373,000 lbs. (360 acres) 267,100 lbs. (220 acres)
Seed (Flower, Vegetable
and Field Crop) $901,515 $1,297,965
Flowers and Ornamental
Nursery Stock 493.468 542,600
Bulbs 212,400
Fur-farming 294.000 309,000
The British Columbia climate is particularly adaptable to the production of
seeds and for bulb culture. Growers on southern Vancouver Island and the Fraser
Valley have specialized in these industries. They are produced also in the Okanagan
and Kootenay Valleys but in a smaller extent. The culture of nuts is a new but
rapidly growing industry. Within a year or two some of the larger plantings will
be in production; walnuts; almonds; sweet chestnuts and filberts are the more
prominent kinds.
The Provincial Government has done much to assist the agriculturists —
farmers, ranchers, dairymen, fruit growers, horticulturists, etc. — through the
Department of Agriculture, the University of British Columbia and many other
organizations such as control boards, institutes, associations and clubs. A large
field staff is so distributed that all parts of the province is served with expert agri-
cultural advice in all its phases.
58
When one considers the vast acreage that is available for farms of ever)-
type and the fact that so much food stuffs are imported, the field of agriculture is
indeed bright for the future. There is a definite home market for meats of all
kinds, wool, dairy products, etc.
Fisheries. Fishing is one of British Columbia's oldest industries and it is
rated as the province's fourth primary industry. It represents an investment in
1944 of about $33,550,302, made up of $19,067,010 in plants and $14,483,292 in
fishing boats and gear. The value of the 1944 production was $34,900,990 which
is approximately half of the total production valuation for all Canadian fisheries.
The industry gives direct employment to over 19,000 persons and indirect
employment to a vast number of others in such industries as boat building, ship
chandlery, can, canning machinery and box manufacture, printing labels, groceries,
cordage, freight movement and other fields.
It is of interest to note that the sea produced British Columbia's first two
export commodities. Furs were the first, sea-otter skins being shipped to China
in 1785. Salt salmon was the second commodity — the Hudson's Bay Company
shipping salt salmon from Fort Langley in 1829, to Hawaiian Islands. In 1863
a saltery was established at Beechy Bay and in the following year another was
built on the Fraser River. In 1867 the first salmon was preserved in hermetically
sealed cans in New Westminster as a kitchen experiment. The first commercial
cannery was established in 1870 at Annieville below New Westminster. In 1889,
the first complete cargo of canned salmon was shipped to Great Britain. In 1898,
the first cold storage plant, capacity 350 tons, began operations in New Westminster.
The importance of the fish species are in the following order — salmon (about
four principal types), herring, halibut and pilchard. The pests of the fish family,
dog-fish and sharks, have recently rated very high in remunerative returns on
account of the Vitamin A value in their livers.
The following indicates the comparative volume and value of the salmon
catches for 1943 and 1944:
1943 1944
Product J'olitmc J'alue Volume Value
Salmon 1,214,214 cwt. $7,201,486 1,075,719 cwt. $7,255,524
Most of the herring are used for canning and salting" and the balance — as is
also the offal from the other canneries — is converted into oils and meals for cattle
and poultry. Not only are the oils valuable for their vitamin content but also as
a base for soap, shortening and paint manufacturing.
The pilchard catches are very erratic. They are used almost exclusively for
conversion into oil and meal. The industry produced 2,975,880 gallons of herring
and pilchard oil and 24,505 tons of meal in 1943.
Halibut, which are caught in the vicinity of Oueen Charlotte Islands, are a
a 1
59
valuable food fish and their livers have a high vitamin content
Although there is considerable operation in oysters and other shell-fish, it is
small in comparison to the total. It is estimated there are over 30 kinds of fish in
which the industry is interested.
Like many other industries, whaling has suffered a severe set-back due to man-
power shortage and other wartime factors. In 1943, oil production from the whale
catch was 1,300,000 pounds, one million pounds less than in the previous year,
and the whale fertilizer production was 85 tons as against 205 tons in the year
before.
The Dominion Department of Fisheries which has jurisdiction over fisheries,
not only regulates the industry but has done a considerable amount of research
work. It is fitting that the National Government has charge of fisheries because
especially in connection with salmon and halibut, international problems constantly
arise. The Puget Sound salmon pack originates in the Fraser River and considera-
tion must be given to this. As a result of the Hell's Gate disaster of 191 3 in the
Fraser River, wherein the stream was blocked by railway construction thereby
precluding the passage of salmon going up-stream to spawn, the runs practically
ceased. The Government made sufficient improvements through the years by partial
river clearance and careful regulation of catches, to allow some of the run to get to
the spawning grounds thereby preserving the industry in some measure. The Inter-
national Salmon Commission, recently created, has just completed the partial con-
struction of a fish-way in Hell's Gate, and judging from its successful use by a
large number of fish, during the initial run, the rehabilitation of the former
healthy fishing industry is confidently expected.
The Fisheries Research Board is continually at work in the interests of building
up the volume of fish of all species, in evolving new methods of preserving and
marketing and in discovering new uses of its products. With this interest and
assistance of the Government, the industry may look forward with confidence to
its post-war efforts.
Summary. The diversity of natural resources, most of which have been and
are being developed in the southern part of British Columbia, are of great
benefit to the City of Vancouver. With the opening of the northern portion, having
in mind the contemplated construction of railways and highways to and within this
vast area, trade and commerce, both domestic and foreign, should be greatly
increased in this city.
While visiting British Columbia, the late Rudyard Kipling expressed himself
as follows: "Lumber, coal, minerals, fisheries, fit soil for fruit, dairy, and poultry
farms, are all there in a superb climate. The natural beauty of earth and sky match
these lavish gifts; to which are added thousands of miles of safe and sheltered
waterways for coastal trade ; deep harbors that need no dredge ; the groundworks
of immense and ice-free ports — all the title-deeds to half the trade of Asia."
60
TRANSPORTATION ROUTES, EXISTING AND POTENTIAL
Waterways. A little over 85 years ago, British Columbia was but partly
known to the native Indians and to a few intrepid men of the Hudson's Bay Com-
pany. The only means of transportation was by native canoe. There were no roads,
only a maze of vast dense forests. A few small clearings, near the trading posts
were cultivated by the Company men for their own use.
The initial means of transportation was by water. The "Beaver" built in Great
Britain, was the first steamer to ply these Coastal waters and it carried our first
great influx of miners. In the late '8o's the Canadian Pacific Railway Company
commenced its oriental trade, first with chartered and then with its own steamers.
River and lake paddle-wheel steamers played no small part in opening up
British Columbia. These steamers are now practically extinct.
Railways. The Canadian Pacific Railway, the first trans-continental system,
was built across British Columbia to the site of the present city of Vancouver,
then a primeval forest. The first train arrived here in May, 1887, from Montreal.
In 1905, the Great Northern Railway Company, an American line, extended
its line to Vancouver from New Westminster where its terminus had been estab-
lished for approximately the previous 15 years.
The Canadian Northern Pacific Railway, the second Canadian transcontinental
line, and now absorbed in the Canadian National Railways and entering British
Columbia via Vellowhead Pass (lowest elevation in the Rockies, 3,200 feet) began
operations in 1915.
The Grand Trunk Pacific Railway between Edmonton, Alberta, and Prince
Rupert, British Columbia's northern seaport, was completed for traffic in 1914.
This line was also merged with the Canadian National Railways.
The Pacific and Great Eastern Railway, conceived by a private company as
a link between Vancouver and the Grand Trunk Pacific (now Canadian National)
Railway at Prince George, commenced operations north from Squamish on Howe
Sound, 38 miles north of Vancouver, in 1922. However, this company defaulted
to the Provincial Government and the line was built eventually to Quesnel.
The Canadian Pacific Railway absorbed the Esquimalt and Nanaimo Railway
on Vancouver Island running from Victoria to Courtenay. The Canadian National
Railways also have a few miles of road in operation out of Victoria.
The Canadian Pacific Railway has a complete trans-provincial line south of its
main line, and many connecting branch lines.
The Great Northern Railway also has many feeder lines along the southern
boundary. They were constructed to tap the mining centres in the interior of
British Columbia.
Throughout the province, a great many logging railroads were constructed.
In many cases their roadbeds have been used for highways and in some instances,
permanent branch railways. It is of interest to note, that especially during the
61
earlier years of the war with Japan, abandoned as well as existing" logging roads on
Vancouver Island and on the Mainland coastal areas assumed considerable import-
ance in the defence of the Country.
Highways. It will be realized without any reservation that the construction of
highways in such a mountainous country as British Columbia has been a stupendous
task. Over the years, a tremendous effort and inventive genius on the part of man,
untold sums of money and much patience have been "invested" in roads. It is a far
cry from the Fraser Canyon and Cariboo Roads, constructed by the Royal Engi-
neers in the '50's, with their primitive equipment and powder, to the Trans-Canada
Highway by expert contractors with the latest road machinery and powerful
explosives.
In 1943 this province maintained 21,674 miles of highway of various types.
Plates numbers 14, 15 and 16 will show the main trunk roads. The last link in the
Trans-Canada Highway was opened, along the Big Bend, in 1942.
The construction of the new Pacific Highway from the Pattullo Bridge to
the Peace Arch at Blaine, Washington, filled a long felt want.
The Prince Rupert-Terrace Highway was completed in 1944 and will afford
access from the Coast to Central British Columbia to a point east of Prince George.
The Hope-Princeton Road, under contemplation for nearly 70 years, was finally
graded late in 1944, and is now receiving further revision for its betterment.
The construction of the Alaska Highway from Dawson Creek, B.C., to White-
horse, Y.T., as a joint United States and Canadian defence measure, was completed
in 1943. When suitably paved it will greatly assist in the opening and development
of Northern British Columbia.
In addition to major improvements to existing trunk roads — the Trans-Canada,
the Southern Trans-Provincial Highway, the Island Highway and the Cariboo
Highway, the most important in contemplation is the New Westminster- Vancouver
Express Highway. This highway will be unique in that it will be the first "free-
way" in the province.
The Northern Trans-Provincial Highway is yet to be completed between Prince
George and Jasper, and also the North Thompson, between Blue River and Tete
Jaune Cache.
Other important links are connections from Prince George, north and north-
east to the Alaska Highway.
Park highways, to open up the provincial parks, will pay "dividends" from
their inception, for without them very few park visitors and tourists can be antici-
pated. As Garibaldi Park is the closest to the most dense population, it is evident
that a road to this area should be among the first of the park highways to be built.
Airways. The growth and development of our airways in peace and war are
phenomenal. The Trans-Canada Air Lines cross the southern portion of the
province in non-stop flights between Vancouver and Lethbridge. Alberta. The
United Air Lines, from the United States have completed 1 1 years of operation into
62
Vancouver. The Canadian Pacific Air Lines connects Vancouver with points on
Vancouver Island, in Alaska. Yukon an Northwest Territories. The global route
from Edmonton. Alberta, to Alaska and the Orient already pass over Northern
British Columbia and it is anticipated that Vancouver will be a base on the British
Overseas Airways Corporation in the immediate post-war years.
Many completely equipped airports are located in British Columbia, (Plates
Number 14, 15 and 16). Most of these have been constructed as defence measures.
In addition, there are a great many emergency landing fields and seaplane anchor-
ages established. Beacon lights and other aids to aviation have also been provided.
When the Dominion Government's post-war aviation policy has been formulated.
British Columbia should be reasonably well equipped to participate to the fullest
extent.
The increased use of trucks, busses and private automobiles have made serious
inroads on the earnings of railway and interurban electric lines; and steamboat
companies may also be included. Each form of transportation has its field. Cer-
tainly the war has demonstrated the absolute necessity of railways. The newer forms
of transportation will have to be integrated with the others, rather than to entirely
supplant them.
63
Appendix
PLANNING ACCOMPLISHMENTS UNDER THE PLAN
1926 - 1944
Although practically all of the time since the publication of Vancouver's Town
Plan in 1930, has been taken up by the greatest and most sustained depression and
the most savage and devastating, if not the longest war recorded, it has been very
gratifying to the Planning Commission to realize that so many of its recommenda-
tions have been so successfully consummated. (Plate Number 17.)
Zoning. Of the several phases of the comprehensive plan, Zoning is probably
the most abstract because it envelopes the entire city. Nevertheless, the good order
induced by the application of Zoning principles is in evidence almost everywhere.
It is especiallv noticeable in the newer portions of the city where there are no intru-
sions of non-conforming uses. Dunbar Street, is a notable example. In spite of it
being a carline street, the orderly development as a single-family dwelling district
from 19th Avenue to King Edward Avenue, thence as a three-storey commercial
district to 30th Avenue and again as a single-family district to 39th Avenue, is
indeed a satisfactory illustration of the value of Zoning.
The stabilization of property values alone, through the medium of Zoning, has
amply repaid its cost.
Streets. The elimination of the grade crossings from the Canadian Pacific
Railway Company's yards over six of Vancouver's busiest streets to the waterfront,
and the construction of the tunnel in lieu thereof, has given inestimable relief to
traffic.
The construction of the Burrard Bridge has given relief to the overcrowded
Granville and Cambie Bridges, thus facilitating traffic movements and averting
many accidents.
The construction of the First Avenue Viaduct has not only benefited Grand-
view and eastern suburbs, but also interurban motorists.
The widening of Kingsway from Knight Street to Boundary Road has been
a boon not only to this general section but to all interurban travellers and tourists.
One has but to travel the unwidened portion to appreciate the comfort of the new
widening. The entire appearance of the highway has been improved.
The Kitsilano Diversion between 10th and 12th Avenues, the Cedar Cottage
Diversion on Commercial Drive, and the elimination of the jogs on Oak Street at
1 6th Avenue and on Commercial Drive at Venables Street are fine examples of what
can be done in eliminating hazards and obstacles to traffic on major streets such as
the opening of jogs and dead-ends.
64
ACCOMPLISHMENTS
VAN C OUVE R
BRITISH COLUMBIA
VANCOUVER
TOWN PLANNING COMMISSION
COMMISSION'S RECOMMENDATIONS
CADPIED OUT
1926 1944
L E G E N (
mmm STREETS -NEW OR WIDENEI
«™> STREETS OF
PACKS 4 SI
M SCHOOL SITES ACQUIB&d!
' BUS LINES ESTABLISHED
SS BUILDING LINE-S ESTABLISHED ( BY
BY-LAW OB ZONING BY-LAW)
•• •• BRIDGE 4 VIADUCT
RAILWAY TUNNEL.
RAILWAY GRADE CROSSINGS ELIMINATED-1
AND ENTIRE CITY ZONED INTO IO USE DISTRICTS.
H * R I » N D BARTHOLOMEW
(t ASSOCIAT t 3
TOWN PLANNERS
Plate 17
The portion of the Locarno Diagonal from 2nd Avenue and Imperial Street
to Trimble Street near Belmont Drive has been constructed. The right-of-way of
the connection to the Lougheed Highway has also been acquired from Broadway
to Cassiar Street to Boundary Road at 5th Avenue and the road paved.
A substantial number of building lines have been set on streets recommended
for widening in the Commission's Major Street Plan.
Since 1927 vehicular Traffic Counts have been taken every five years in order
to ascertain the trend of the traffic volume within the city and at strategic points
in surrounding municipalities. These four Counts have been of inestimable value and
assistance to the Civic Engineering and Police Departments.
In the matter of Street Widening, the city has retained /-foot or 17-foot strips
(according to the ultimate width of the street) on streets recommended for widen-
ing. A substantial amount of widening (property acquisition) has already been
accomplished by this method.
Parks and Public Areas. The acquisition of two complete waterfront blocks
and several individual lots, including the Crystal Pool property on Beach Avenue
will pave the way for the development of a waterfront park. This led to a wealthy
citizen donating two waterfront blocks on the opposite side of False Creek, in
Kitsilano.
In acquiring property in the vicinity of the north-east portion of the False
Creek Fill for park and other purposes, the city now has most of the right-of-way
for the proposed, connection between Georgia and Charles Street.
The Commission's recommendation of withdrawal from sale of tax sale prop-
erties in a 1,250-acre tract in the south-east portion of the South Vancouver Area,
so that it ma}- be more advantageously replotted as a residential subdivision, was
confirmed by the City Council. The Fraser View Golf Course, containing 210 acres,
was located in this tract and a 100-acre site for a future Old People's Home is
tentatively approved for the area.
Collaboration among various civic authorities is in evidence as never before.
A striking example of this is noted in the deliberations of the Park and School
Boards, as the recommendations contained in the Commission's Public Recreation
Report is of concern to both Boards.
Railway Yards. The Glen Drive railway yards of the National Harbour
Board were constructed at the east end of the False Creek fill. These yards were
designed to serve the grain trade.
65
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