What were the hiring processes for previous Directors of Planning in Vancouver?

CityHallWatch makes the case that a position as important as the Director of Planning should be hired through a proper process, with a proper (and publicly announced) job description, hiring committee, and certain credentials required. Respect for the public and enhancing the public’s trust in City Hall should be included in the job description. Neighbourhoods should be included in the consultation process (not just the development industry as has been the case in the past).

(Post updated 27-Sept-2023 at 5 pm)

To pre-empt a rash decision at City Hall to hire a new Director of Planning — with the seat being abruptly vacated just a week ago (see “City of Vancouver announces end of Theresa O’Donnell’s appointment“) — this post provides a summary of some institutional history, for context. We hope it might be useful for all stakeholders, not the least being our elected officials and the residents of Vancouver. Related post in this series – “What qualities are crucial for a new chief planner in Vancouver? Tips from five former Directors of Planning (Spaxman, McAfee, Beasley, Toderian, Kelley)” (25-Sep-2023)

The role of Director of Planning (a.k.a chief planner, and officially the General Manager, Planning, Urban Design and Sustainability) is one of the most important at Vancouver City Hall.

The position is at the nexus of many interests. Planning and development functions certainly affect the lives and wellbeing (housing, physical, mental, and financial) and indeed happiness of the 670,000 or so current residents of the city, not to mention future generations. But also, on a day-to-day basis, this position is probably pushed and pulled by powerful forces — the interests of the development industry and lobbyists, unions, and of course, political forces (not only at the municipal but also provincial, federal, and even global levels). Then there’s the money. Real estate in Vancouver is valued in the hundreds of billions of dollars, while decisions at City Hall every year directly affect billions of dollars of asset gains (or losses) and the profits of many players in the real estate and development industries.

Changes on City Council and among senior management at Vancouver City Hall over the past fifteen years have often happened abruptly. That, combined with a top-down approach under former City Manager Penny Ballem significantly and negatively affected morale and culture at City Hall, and has resulted in a serious loss of institutional memory.

The past four chief planners of Vancouver have had their terms end suddenly under circumstances never fully explained to the public. Reporters and persons close to action often give the impression that the firing and hiring of the past four planners has been driven primarily by pressure from influential persons in the real estate and development industry who were not pleased with the incumbent and wanted more opportunities, faster, and wholesale deregulation. And, evidently, they played a major role in suggesting and influencing the hiring of replacements.

Here, for handy reference are some references and links we’ve put together at CityHallWatch over the years, from various sources, including FOI queries from more than a decade ago.

This is admittedly an incomplete archive. Just bits and pieces we’ve compiled over the years, but they give a window into hiring processes for this important position. This post will be updated as more details and information are obtained.

• THERESA O’DONNELL (“appointed” with no search 18-Apr-2021, “concluded” 18-Sep-2023)

No search was conducted. An internal appointment by City Council was done in camera under section 560 of the Vancouver Charter, which states: “The Council may appoint a Director of Planning, who shall have such duties and powers as the Council may from time to time prescribe.” Her original appointment was announced publicly on 28-Apr-2021, after having served Vancouver two years (hired by Gil Kelley in March 2019 as deputy director of planning). Despite having, to our knowledge, no Canadian certifications related to planning or architecture, and only two years in Vancouver, she had very limited knowledge of the planning history or culture of Vancouver, her appointment during the COVID pandemic after the sudden departure of Gil Kelley gave her the power to preside over some of the most significant planning decisions in generations, including the Vancouver Plan, Broadway Plan, and Missing Middle/Multiplex Rezoning policies. And then she was gone.

Reference (“appointment” and “conclusion” notices): https://cityhallwatch.wordpress.com/2023/09/18/theresa-odonnell-chief-planner-appointment-ends

• GIL KELLEY (hired from San Francisco. Vancouver’s chief planner 2016 to March 2021)

Global executive search firm Boyden posted two key positions for the City of Vancouver: (1) Director of Planning (Chief Planner), and (2) General Manager of Planning & Development. For reference, further below are excerpts of the listings.

Also, significantly, the City Manager Sadhu Johnston called former planning staff together to get their input for hiring a new planning director. This, one could say, would be a smart move, if the City were seeking some continuity in planning ideas and philosophy as the organization changes.

Above: Prior to Gil Kelley being hired in 2016, then-City Manager Sadhu Johnston convened a meeting of previous planning staff to seek advice on the desired qualities of a new Director of Planning. Back row Nathan Edelson, Ralph Segal, Tom Phillps, Frank Ducote, Trish French, Ronda Howard, Phil Mondor, Scot Hein.  Front Ann McAfee, Larry Beasley, Ray Spaxman. This image is known as “Ray’s Recruits,” all having been hired prior to 2006. Another photo may be circulating that includes Brent Toderian (hired in 2006), who was also present that day. Thank you to Ann McAfee for sharing the photo.

Below is text excerpted from the hiring notices.

Director of Planning (Chief Planner) City of Vancouver, Vancouver, BC
https://www.boyden.ca/canada/opportunities/1049/director_of_planning_chi/index.html

… As Chief Planner you are also the senior advisor to Council and the City Manager on all planning matters. The role also uniquely encompasses the statutory responsibilities of the Director of Planning and, as such, is responsible for land use planning and related policies, and represents the City in the planning and negotiation of major private and public developments. The Director of Planning leads an innovative team of 110 including an urban design group that is helping shape the present and future of Vancouver.

As the ideal candidate, you are a sophisticated and visionary planner with demonstrated experience developing and building community support for the implementation of leading edge urban planning and sustainability policy in a municipality. Armed with a graduate degree in Planning or related discipline, you have experience shaping the renewal and development of a city through robust policy framework. The role demands a clear vision, open mindedness, urgency, and decisiveness as well as respect for the contribution that the community and the private sector play in planning. As this is a high profile role with significant stakeholder and community interaction, you must demonstrate nuance, courage, and high integrity.

General Manager, Planning & Development, City of Vancouver, Vancouver, BC
https://www.boyden.ca/canada/opportunities/1048/general_manager_planning/index.html
The Planning & Development group has been instrumental to achieving this international reputation. The group oversees land use planning and development within the context of a broad range of social, economic, physical and environmental sustainability issues affecting the livability of this world class City. Managing a team of over 400, as GM you have a broad operational and strategic mandate that includes oversight of land use planning and urban design; development and building applications, and permit issuance; and building policy and inspections. Reporting to the City Manager, you will lead a number of large-scale business transformation initiatives that improve efficiency, service excellence and value for the residents, builders and stakeholders of the City of Vancouver. As the ideal candidate, you are an innovative and accomplished executive with experience in a large municipality where you have led a large, diversified team. An inspirational leader who fosters excellence, you demonstrate sound judgement, a commitment to public service and are recognized as a trusted professional who understands how to drive best practices and operational excellence. Experience in development, planning and/or building would be an asset but not essential. A graduate degree is ideal, a professional registration preferred. The role demands superior communication, negotiation, and relationship skills; a commitment to the public service; as well as an ability to lead a transformational agenda.

Source: “City Hall job listings for “Director of Planning” (Chief Planner), and “General Manager, Planning & Development” (CHW, 26-Feb-2016) https://cityhallwatch.wordpress.com/2016/02/26/job-listings-director-planning-gm-planning-dev/

*****

• BRIAN JACKSON (hired 24-Jul-2012, early retirement announced Oct 2015)

A search committee chaired by the City Manager and composed of senior City staff handled the recruitment process. Below is a list of the stakeholders consulted for the job search. Note the heavy influence of development industry heavyweights, which later negotiate land transactions and rezonings with the City. Note the glaring absence of any stakeholder representing the public. Executive search firm Boyden was used (https://www.boyden.ca).

• City of Vancouver Planning Commission
• Vancouver Economic Commission
• Vancouver Board of Trade
• BC Housing
• UBC School of Architecture and Landscape Architecture
• UBC School of Community and Regional Planning
• UDI (Urban Development Institute)
• Concert Properties
• Concord Properties
• Greater Vancouver Home Builders Association

*****

• Brent Toderian (hired in 2006, terminated 31-Jan-2012)

Comprehensive Job Description here. A good read. Including “Personal Characteristics” section.

Korn/Ferry International (https://www.kornferry.com/) led a search for the new Director of Planning to replace Larry Beasley.

(Incidentally, Mr. Toderian ended up being one of the key players in negotiations with other local governments in the GVRD region (Metro Vancouver). The 30-year growth strategy, with major legal implications on land use in the region, was rammed through quietly at the final stages, with virtually no media or public attention. Vancouver citizens hardly heard a thing about it. In Vancouver, part of that ended up being the Broadway Subway and the Broadway Plan.)

*****

• ANN MCAFEE (1994 – 2006, Co-Director of Planning)

• LARRY BEASLEY (1994 – 2006, Co-Director of Planning)

Note: 1994-2006 Ann McAfee and Larry Beasley were named Co-Directors of Planning. In 2006, Ann retired (at the time government employees were required to retire at age 65). Ann established City Choices Consulting. Larry also chose to leave the City in 2006 establishing Beasley & Associates Planning.

McAfee had a similar job description to Beasley (see CityHallWatch Sept 26 link) with responsibility for co-managing the Planning Department and responsibility for:

• City-wide plans: CityPlan, Sustainability, Housing, Financing Growth, Jobs & Economy
• Co-managing with Engineering Transportation, Greenways, and Transit Plans
• Managing Inter-departmental Sustainability Group
• Neighbourhood Plans outside the Central Area including Community Visions, Neighbourhood Centres
• Business Improvement Programs
• Represented City of Vancouver on Metro Regional Growth Plan and Federal Housing, Rail, and New Deal initiatives.

When McAfee-Beasley left the City, the Director of Planning role was again consolidated into one person.

Larry Beasley’s job description is here.

Ref: Job descriptions for Director of Planning, remuneration and reflections (1-Feb-2012). https://cityhallwatch.wordpress.com/2012/02/01/job-descriptions-for-director-of-planning-remuneration/

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On Fletcher’s resignation, heads of two sections of Planning Department (City Plans – Ann McAfee and Central Area – Larry Beasley) were appointed as interim co-directors. Both were long time City of Vancouver employees, with McAfee joining the City in 1974 as Housing Planner, and Beasley in 1976 as a Neighbourhood Planner.

*****

• TOM FLETCHER (1989-1993)

National Search: Tom Fletcher (from Ottawa). Resigned and became City Manager Delta,

Ref. – https://www.theglobeandmail.com/news/british-columbia/vancouver-planning-chief-toderian-given-the-axe/article554571/

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• RAY SPAXMAN (1973 – 1989)

National Search: Ray Spaxman (from Toronto). Resigned and established Spaxman Consulting, following ongoing disagreements with then mayor Gordon Campbell. Reference – https://www.vancouverisawesome.com/courier-archive/opinion/here-we-go-again-the-search-for-another-director-of-planning-3015545

Link – http://spaxman.com/

*****

• W.E GRAHAM (1963 – 1973)

In 1963, Bill was appointed Director of Planning for the City of Vancouver where he served for ten years during a key time in Vancouver’s history. He started the process of revitalization and renewal in the Vancouver core that led directly to Pacific Centre and Gastown, and later to other projects like Granville Island. Ref – https://www.legacy.com/ca/obituaries/richmondnews/name/william-graham-obituary?id=41256299

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• GERALD SUTTON-BROWN (1952–1959)

First Chief Planner of Vancouver, then Commissioner with the Board of Administration from 1960–1973. Influenced the trajectory of Vancouver at a critical time of its development. Legacy includes the West End, increased density throughout the city and walkways outside of Stanley Park like Coal Harbour and English Bay. Instrumental in building the Queen Elizabeth Theater and founding the Planning Institute of British Columbia. Fired in 1973 by the TEAM City Council, under Art Philips. Some regarded him as the most powerful person in City Hall. Ref – https://en.wikipedia.org/wiki/Gerald_Sutton-Brown

In 1959, Sutton-Brown generated a city plan that former TEAM alderman and transportation engineer Setty Pendakur described as “completely automobile and freeway oriented.” Ref – https://en.wikipedia.org/wiki/The_Electors%27_Action_Movement

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MORE READING

The Vancouver Achievement: Urban Planning and Design, by John Vincent Punter, UBC Press, 2003.

Available at the Vancouver Public Library.

The first comprehensive account of contemporary planning and urban design practice in any Canadian city, this book examines the development of Vancouver’s unique approach to zoning, planning, and urban design from its inception in the early 1970s to its maturity in the management of urban change at the beginning of the twenty-first century. By the late 1990s, Vancouver had established a reputation in North America for its planning achievement, especially for its creation of a participative, responsive, and design-led approach to urban regeneration and redevelopment. The Vancouver Achievement explains the evolution and evaluates the outcomes of Vancouver’s unique system of discretionary zoning.

 Becoming Vancouver: A History, by Daniel Francis, Harbour Publishing, 2021.

A brisk chronicle of Vancouver, BC, from early days to its emergence as a global metropolis, refracted through the events, characters and communities that have shaped the city. In Becoming Vancouver award-winning historian Daniel Francis follows the evolution of the city from early habitation by the Musqueam, Squamish and Tsleil-Waututh First Nations, to the area’s settlement as a mill town, to the flourishing speakeasies and brothels during the 1920s, to the years of poverty and protest during the 1930s followed by the long wartime and postwar boom, to the city’s current status as real-estate investment choice of the global super-rich. Tracing decades of transformation, immigration and economic development, Francis examines the events and characters that have defined the city’s geography, economy and politics. Francis enlivens his text with rich characterizations of the people who shaped Vancouver: determined Chief Joe Capilano, who in 1906 took a delegation to England to appeal directly to King Edward VII for better treatment of Indigenous peoples; brilliant and successful Won Alexander Cumyow, the first recorded person of Chinese descent born in Canada; L.D. Taylor, irrepressible ex-Chicagoan who still holds the record as the city’s longest-serving mayor; and tireless activist Helena Gutteridge, suffragist and Vancouver’s first woman councillor. Vancouver has been called a city without a history, partly because of its youth but also because of the way it seems to change so quickly. Newcomers to the city, arriving by the thousands every year, find few physical reminders of what was before, making a new history like Becoming Vancouver long overdue.

More book and article suggestions welcome. Please e-mail citizenYV@gmail.com