CEMETERY MASTER PLAN UPDATE - CivicWeb

C:\Users\rparkinson\Documents\GroupWise\2020-10-20_Cemetery Master Plan v2_REP.docx September 30, 2020

October 20, 2020

ADMINISTRATIVE REPORT TO COUNCIL

ON

CEMETERY MASTER PLAN UPDATE

PURPOSE To seek Council’s authorization to adopt the updated City of Kamloops Cemetery Master Plan. COUNCIL STRATEGIC PLAN This report supports Council’s strategic priorities and areas of focus regarding: • Governance and Accountability

- Asset Management: We proactively plan for the repair and replacement of our infrastructure.

- Community Engagement: We are committed to engaging and connecting with Kamloops residents and stakeholders.

- External Relationships: We understand the importance of maintaining and improving key relationships.

- Fiscal Responsibility: We are fiscally responsible and accountable. • Livability

- Places and Spaces: We plan community amenities that create great places and spaces for community living.

SUMMARY Since the last Cemetery Master Plan was adopted in 2013, Hillside Cemetery has moved closer to reaching its capacity, demographics have changed, and new trends in the cemetery industry have emerged. Urban Systems Ltd. was hired to assist with developing the new plan (Attachment “A”). There has been a growing trend in cremations compared to traditional full burials across Canada. This trend applies to Kamloops, which has typically been in the high 80% range. Other current industry trends include green burials, interment densification, family columbaria, and scattering gardens. The consultant forecasted future capacity of Hillside Cemetery using mortality rates, population forecasts, methods of disposition, market capture, and future interment needs. A site inventory was conducted to find existing constraints and opportunities. Cemetery needs were combined with the inventory to create a high-level concept plan that can be used to develop the cemetery for the next 30 years. The draft Cemetery Master Plan was previously presented to the Parks Engagement Group and the Civic Operations Committee for their review. Both groups endorsed moving forward with the plan.

CEMETERY MASTER PLAN UPDATE October 20, 2020


The Communications Services and Community Engagement Division created a survey for residents and stakeholders, which had more than 430 views, and more than 50 residents respond to the survey (Attachment “B”).

RECOMMENDATION: That City Council authorize the adoption of the Cemetery Master Plan

SUPPORTING COUNCIL AND CORPORATE DIRECTION There is no applicable information DISCUSSION The City has developed a draft Cemetery Master Plan (Attachment “A”). The City owns and manages five cemeteries, but this initial phase of the plan focuses on Hillside Cemetery. Since the last plan was adopted in 2013, Hillside Cemetery has moved closer to reaching its capacity, demographics have changed, and new trends in the cemetery industry have emerged. Urban Systems Ltd. was hired to assist with developing the Cemetery Master Plan. The scope of work included analysing the site in detail, comprehensively reviewing all of the background material, forecasting the Kamloops market and its future needs, incorporating current trends and best practices, and formulating a high-level concept plan. Hillside Cemetery currently offers a variety of interment options, including full burial and cremation plots, a columbarium, two mausoleums, and an ossuary. There is also a privately operated crematorium on the northwest portion of the property. To assess Kamloops’ future cemetery needs, it is important to examine current trends in interment practices. There has been a growing trend in cremations compared to traditional full burials across Canada and even more so in BC, with 85% of deaths resulting in cremation. This trend also applies to Kamloops, which has typically been in the high 80% range. Other current industry trends include green burials, interment densification, family columbaria, and scattering gardens. Green burials involve returning the body to the earth as naturally as possible. This typically means no embalming or cremating and the body is placed in a biodegradable shroud or a casket with no liner or vault. The area is planted with native vegetation, and the names of the interred are often inscribed on a communal marker. Interment densification or stacking burials vertically below using double or multiple depth plots is common in cemeteries with high land costs and low inventory. This has not been a popular option in Kamloops which could be due to minimal cost incentives, perceived high land availability, and lack of development or promotion of these approaches. To forecast the future capacity for Hillside Cemetery, the consultant looked at population forecasts for the region, age-specific mortality rates, disposition methods, market capture based on previous trends, and future interment needs (number of plots and niches required) over the next 30 years.

CEMETERY MASTER PLAN UPDATE October 20, 2020


Two scenarios were used to predict future interment needs—maintaining the status quo (existing trends) and cost incentives to promote double-depth burials. Maintaining the status quo would require enough land for approximately 500 more full burial plots. Constraints that were identified during Hillside Cemetery’s site inventory and analysis include steep and difficult-to-develop terrain, utility infrastructure that needs to be protected, and an overland flood route for the adjacent reservoir. Strengths that were identified include large areas suitable for future development, retention of native vegetation unique to the Kamloops area, and the ability to use the future retention pond as an attractive water feature. The cemetery needs identified in the report were combined with the site inventory to formulate a high-level concept plan that can be used to estimate future capacity. Highlights of the plan include future road and path layouts, identification of areas suitable for full burials, cremation plots, double-sided columbarium, a green burial area, a scattering garden, mausoleum expansion, viewpoints, a stormwater pond, and landscaping. The concept plan has sufficient inventory for approximately another 30 years. The draft Cemetery Master Plan was previously presented to the Parks Engagement Group and the Civic Operations Committee for their review. Next Steps Additional work could also include more concept planning, inclusion of the Pleasant Street Cemetery for potential infill opportunities, business planning showing future revenue and costs scenarios, and detailed design of features highlighted in the concept plan. COMMUNICATIONS PLAN The Civic Operations Department worked with the Communications Services and Community Engagement Division to solicit input from stakeholders and residents on the proposed Cemetery Bylaw changes and the draft Cemetery Master Plan. There were more than 430 views, and more than 50 residents responded to the survey (Attachment “B”). Key responses regarding the Cemetery Master Plan included a strong interest in green burials and scattering gardens and future infill at the Pleasant Street Cemetery. Most respondents felt the Cemetery Master Plan was thorough enough. Author: M. Doll, Parks Planning and Operations

Supervisor Reviewed by: W. Heshka, Communications Manager

J. Fretz, P.Eng. Civic Operations Director

Approved for Council MD/kjm Attachments

CEMETER IESMASTER PLANPHASE 1

C i t y o f K a m lo o p s

JULY 2020

Attachment "A"

Cemeteries Master Plan Phase 1

P R E P A R E D B Y :

Urban Systems Ltd. 550-1090 Homer Street Vancouver, BC V6B 2W9

Catherine Berris [email protected]

This report is prepared for the sole use of the City of Kamloops. No representations of any kind are made by Urban Systems Ltd. or its employees to

any party with whom Urban Systems Ltd. does not have a contract. © URBANSYSTEMS® 2020

City of Kamloops

Contents

E X E C U T I V E S U M M A R Y � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � i

1 �0 I N T R O D U C T I O N � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � 1

1 .1 P ro je c t O v e r v ie w ...................................................................................................................................... 1

1 .2 P la n n in g P ro c e s s ....................................................................................................................................... 1

1 .3 H i l ls id e C e m e t e r y ...................................................................................................................................... 2

2 �0 A N A LY S I S O F N E E D S � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � 3

2 .1 C e m e t e r y T re n d s a n d B e s t P r a c t ic e s ............................................................................................... 3

2 .2 C o n s id e r a t io n s fo r K a m lo o p s .............................................................................................................. 8

2 .3 F o re c a s t o f M a r k e t a n d N e e d s ............................................................................................................ 8

3 �0 C E M E T E R Y C O N C E P T P L A N � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � 2 0

3 .1 S i t e In v e n t o r y a n d A n a ly s is ............................................................................................................... 2 0

3 .2 P o t e n t ia l C o n c e p t P la n ....................................................................................................................... 2 2

3 .3 N e x t S t e p s ................................................................................................................................................. 2 3

M A P S � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � 2 5

M a p 1 S i t e In v e n t o r y a n d A n a ly s is

M a p 2 P o t e n t ia l C o n c e p t P la n

i Cemeteries Master Plan Phase 1

EXECUT IVE SUMMARYThe City of Kamloops has several cemeteries that it owns and operates. These have been the subject of several previous planning studies. Much has changed since those studies were completed. Hillside Cemetery is approaching the capacity of its developed land, demographics have changed considerably, and new trends in cemetery services such as green burial are of interest to residents.

The City is interested in preparing a new Cemeteries Master Plan and contracted Urban Systems to complete Phase 1 of that process. The Phase 1 work focuses on Hillside Cemetery and includes a forecast of the market and needs, analysis of capacity, and a potential cemetery concept plan.

The key cemetery trends are ongoing increases in cremation rates, green burial, and interment densification. Some residents are interested in more environmentally conscious ways to be interred. Municipalities are interested in densification as land becomes more scarce and costly.

Kamloops has not experienced much interest in green burial or double-depth plots to date, but that may be due to the pricing structure and lack of development or promotion of these approaches. There is a significant demand for mausoleum spaces, which is a trend unique to Kamloops.

The process for forecasting cemetery needs included the following steps:

� Population forecast

� Projection of age-specific mortality rates and methods of disposition (cremation vs burial)

� Calculation of the Hillside Cemetery market capture based on previous trends

� Forecast of interments and interment needs (numbers of plots and niches) over the next 30 years

Interment needs were forecast based on two scenarios – mostly single depth burial (existing trends) and incentivized double depth burial. Scenario 1 results in the need for approximately 500 more full burial plots to accommodate the demand compared to Scenario 2.

A site inventory and analysis identifies strengths and challenges related to further development of the cemetery. A potential concept plan provides a layout that accommodates the forecast needs. It is a high-level plan as its primary purpose is to estimate the years of capacity remaining at Hillside Cemetery. The potential concept plan has sufficient inventory for around 30 years based on needs between Scenarios 1 and 2.

The future phases of cemetery planning may include a workshop with stakeholders, community engagement, more design explorations and options, inclusion of Pleasant Street Cemetery, cost estimates, and a business plan. Once the Cemeteries Master Plan is complete, detailed design can be conducted.

City of Kamloops 1

1 .0 I N TR ODUCT ION1.1 Project Overview

The City of Kamloops has several cemeteries that it owns and operates. These have been the subject of several previous planning studies:

� 1999 Hillside Cemetery Management and Development Plan (Hilton Landmarks Inc.)

� Kamloops Cemeteries 10 Year Strategic Plan 2004 – 2013 (2003, Hilton Landmarks Inc.)

� City of Kamloops Green Burial Feasibility Study, 2012 (LEES + Associates)

Much has changed since those studies were completed. Hillside Cemetery is approaching the capacity of its developed land, demographics have changed considerably, and new trends in cemetery services such as green burial are of interest to residents.

Pleasant Street Cemetery is at capacity but may have potential for some infill. There are four historic cemeteries – Chinese Cemetery, Pioneer Cemetery, and Provincial Home Cemetery on 6th Avenue, and Old Men’s Cemetery. The latter may also have opportunities to offer new services that are complementary with the historic values of the site.

The City is interested in preparing a new Cemeteries Master Plan and contracted Urban Systems to complete Phase 1 of that process. The Phase 1 work focuses on Hillside Cemetery and included the following tasks:

� Start-up meeting and site visit to discuss site characteristics, opportunities, and challenges related to the cemetery

� Review of background documents, trends, and best practices

� Forecast of the market and needs

� Site inventory and analysis to identify design considerations and cemetery capacity

� Potential concept plan

1.2 P lanning ProcessPhase 1 of the master plan was mostly a technical exercise guided by City staff. Future phases of the process will include stakeholder and community input, exploration of more design options for Hillside Cemetery, planning and potential infill of Pleasant Street Cemetery, capital and operating cost estimates, and a business plan that projects revenues and costs showing cash flow over time.

2 Cemeteries Master Plan Phase 1

1.3 Hillside CemeteryThe air photo on this page shows the current layout of Hillside Cemetery. The site has a variety of interment types, including full and cremation plots, a columbarium garden, children’s section, military section, and some faith-based sections. The area on the west portion of the site is undeveloped, though much of that land is too steep for interments. As some of the surrounding lands were developed, the City had fill material placed in the north west portion of the cemetery west of the service road and at the base of the steep hill. A site survey of this area has not been completed.

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City of Kamloops 3

2 .0 ANALYSI S OF N EEDS2.1 Cemetery Trends and Best Pract ices

Trends involving interment practices need to be considered to accurately assess the future cemetery needs for Kamloops. Cemetery services have been evolving in response to economic, environmental, and social considerations.

The first service in community cemeteries was basic burial with a casket in the ground. As urban cemeteries became more concerned about maintaining smooth grass lawns and reducing maintenance associated with subsidence over plots, concrete vaults and fiberglass liners were introduced. Some cemeteries, such as a small portion of Hillside Cemetery, also use concrete runners as a base for monuments to reduce maintenance.

As cremation became popular, the next services offered were burial plots for cremated remains and allowing cremated remains above a full burial. With increasing rates of cremation and concerns about space, columbaria were the next interment service introduced.

Some cemeteries in communities where there are immigrants from Eastern Europe also have mausoleums. Kamloops is unique in having many, and ongoing interest in, mausoleum interments.

More recent trends include family columbaria, green burial, scattering gardens, and memorials. Cemeteries are finding that a broader range of services can enable them to meet more diverse needs.

CREMATIONAcross Canada, there has been a growing increase in cremation compared to traditional full burial (Figure 2.1). Since 2001, the cremation rates in Canada, excluding Quebec, have increased from 47.2% in 2001 to 59.2% in 2011. The largest proportion of that increase occurred from 2001 to 2006, which saw a 10% increase in the percent of deaths cremated. From 2006 to 2011, the increase flattened with an overall increase in deaths cremated by 1.9%.

British Columbia has historically had the highest cremation rate among the provinces and territories (Figure 2.1). In 2001, British Columbia had 75.5% of all deaths cremated, a figure that was approximately 16% higher than the second highest, Yukon Territory. In 2011, British Columbia’s cremation rate experienced a minor increase to 82.3%, and it has remained the province or territory with the highest cremation rate in the country. It was projected that this rate would rise to 85% in 2016.


F I G U R E 2 . 1 : P E R C E N TA G E O F D E A T H S R E S U LT IN G IN C R E M A T IO N IN B R IT IS H C O L U M B IA A N D C A N A D A

S o u r c e : C re m a t io n A s s o c ia t io n o f N o r t h A m e r ic a , 2 0 1 7 ; B C V it a l S t a t is t ic s , 2 0 1 8

The Cremation Association of North America cites five major factors for the rise of cremations and the decline of the full burials, as follows:

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1. Cost – Typical cremation costs average between $1,000 and $3,000, compared to a full burial, which averages between $6,250 and $8,000.

2. Range of Options – The options for memorialization offered by cremation are diverse and appealing. Cremated remains can be placed in single or multiple locations, buried or sealed in niches in cemeteries, scattered in appropriate locations, or divided into keepsake urns, jewelry and other items that may be shared by loved ones.

3. Environmental Impact and Land Consumption – Full burials require more land and are seen by some as having more significant environmental impacts.

4. Location and Transport – Cremation allows for the easy and inexpensive transport of a loved one’s remains.

5. Religious Acceptance – Many religions now accept cremation, and some have begun to plan and install columbaria on their religious grounds.

The evolution of burial practices within religions that have long histories in Canada has influenced the cemetery services offered in Canada. The allowance of cremations by the Catholic Church in 1963 has led to a continual increase in the number of Catholic cremations. There has also been a gradual increase in the number of Jewish cremations, a practice that is contrary to Jewish traditions. Changing religious norms and the acceptance and convenience of cremation are factors in the increase of cremation as the most popular method of disposition in BC.

Cemetery Master Plan | Phase 1 4

City of Kamloops 5

Along with the increase in cremations, the death service industry has responded by expanding options within cemeteries. Interment of cremated remains in a cemetery enables families to visit the remains of their loved ones in a location that is permanent, protected, and contemplative. Cemeteries and memorial gardens are also including memorial plaques for honouring loved ones who may be interred elsewhere. This is attractive to families who have relocated or for loved ones who lived in multiple locations. Kamloops has this type of memorial in Hillside Cemetery.

GREEN BUR IALGreen or natural burial is a trend that is gaining traction among western nations, including Canada. Green burial involves returning a body as naturally as possible to the earth. The body being interred is not embalmed or cremated; it is placed in a simple biodegradable shroud or casket and buried without a liner or vault. Vegetation is planted (often native trees, shrubs and/or meadow plants) and allowed to naturalize, and the names of those interred in an area are typically inscribed on a communal marker or plaque.

This method is a low-impact alternative to traditional full burials, which introduce toxic chemicals into the environment from the embalming process, and typically involve large quantities of metal, hardwood, fiberglass, and/or concrete used for caskets, crypts and/or liners. Green burial also has less environmental impact than cremations, which use large amounts of energy and materials to cremate a body. Cremated remains and full burials contain metals such as lead, boron, cadmium, chromium, and cobalt that can be toxic to the environment, which could be a concern related to the scattering of remains in natural settings.

There are now over 270 natural burial sites in the United Kingdom. BC currently has several cemeteries offering this option, the most active one being Royal Oak Burial Park near Victoria. Royal Oak has been offering green burials since 2010, and as of late 2019, has completed 250 green burials.

Green burial now accounts for approximately 20-25% of all interment sales at Royal Oak (full burial and cremated options combined). This percentage is increasing annually. Not many clients switch from traditional burial to green burial. About 30% of clients who pre-purchased cremation, or would have previously chosen cremation, have switched to green burial. The main driver is that green burial is the most straightforward of the three options - no caskets or urns are required. Some also embrace the minimalistic philosophy and will change from scattering (costing a few hundred dollars) to the more expensive green burial option because they believe in it so strongly.

Variations of natural burial are quite common, e.g., placement of unembalmed remains in a biodegradable covering within a traditional full burial plot (sometimes with an all-natural monument), or green burials with individual rather than group markers. Mountain View Cemetery in Vancouver has recently adopted triple-depth consecutive (those interred in one plot do not know each other) green burial as an option, which increases affordability. The “greenest” expressions involve additional measures such as not using machinery or motor vehicles as part of the burial process.


Green burials are usually a less expensive option than a full burial and can cost more or less than cremation. Green burial can bypass expenses such as embalming, vaults, and headstones; on the other hand, there are costs for the use of land and vegetation. As an example, per Royal Oak Cemetery’s current fee schedule in Victoria, the cost of green burial is between 65-75% of the cost of a full burial and 20% more than the cost of a cremation interment; this cemetery cremation interment fee does not include the cost of cremation, which in most cases would make the total cost of cremation higher than green burial.

There are two primary methods of planning green burial plots. One is to allow customers to purchase rights to a specific plot. This can enable couples to be interred together; however, it delays opportunities for planting until all interments in an area are complete. The other approach is to inter sequentially. This allows for immediate planting, with the condition being that the deceased are not necessarily buried close to their family members. Other conditions of green burial include rapid interment after death, which can be prolonged somewhat with refrigeration, and prohibition of exhumation.

FAMILY COLUMBAR IAFamily columbarium units are individual monuments with two or more niches that hold the cremated remains for one family. These are typically sold by a cemetery as rights of interment for a plot the same size or slightly smaller than a full burial plot. The family purchases the monument. These are popular in cemeteries where there is plentiful space, as these occupy much more space than columbarium walls in relation to the number of remains interred.

SCATTER ING GARDENS AND OSSUAR IESA scattering garden is a planted area where cremated remains are placed, usually below the surface of the soil. A typical approach is to remove a mulch surface or a plant, hand dig a small hole, place the remains with no vessel into the hole, then backfill with soil and replace the mulch or plant. Group memorials are usually used to honour those interred in the scattering garden. This is the least expensive option for interment in a cemetery, as the garden space can be reused over time and there is no right provided over the land.

Ossuaries are large vessels, often buried, into which cremated remains of multiple individuals are placed. The remains are comingled.

The ossuary in Hillside Cemetery is relatively popular. In many cemeteries that have installed ossuaries, there has not been much interest.

City of Kamloops 7

INTERMENT DENSIF ICATIONAs the world’s population continues to grow, cities become more dense, urban land becomes scarcer and increases in value, and communities are looking for ways to make their cemeteries last longer. The various ways of interring cremated remains offer options that require minimal space for those who are cremated. For full interments, there are two main trends– saturated or tiered burial, and grave reuse.

Saturated or tiered burial is the practice of stacking burials vertically below or also above ground with fill, e.g., retaining walls. This is being done with up to four levels in Israel, and a company in the UK has a modular system that allows up to four burials and 20 urns per plot (greengraves.com). Most North American cemeteries do not currently inter full remains more than two deep; however, where soil conditions are favourable, there is no reason why cemeteries cannot perform interments at least three deep as is being done in Vancouver. This option can work well in combination with green burial because green burial interments occupy significantly less vertical space.

The other approach is sustainable family burial, also called grave reuse, which involves new remains being interred in an occupied plot after a set time period. Worldwide, sustainable family burial is occurring in Europe, Asia, and Australia between 20 and 100 years after the initial interment. There is a distinction between reuse within a family or by a stranger. Reuse within a family involves retention of the original plot ownership. Changing ownership of plots for grave reuse is based on the concept that plots are rented for a set time period, rather than being sold; this is a historic practice in some countries.

With sustainable family burial, the original remains can be consolidated within the original plot at the previous elevation or lower, moved elsewhere, sometimes to a mass grave, or cremated and placed in a vault. In BC, sustainable family burial within a family is an option at Mountain View Cemetery in Vancouver, with a minimum of 40 years between interments.

BYLAWS AND CONTRACTSCemetery bylaws need to be explicit about practices related to green burial and grave reuse. Some of these options should only occur in new locations designated for these purposes. Contracts may also need to be revised, e.g., with green burial or tiered burial, the remains are unrecoverable.


2.2 Considerat ions for KamloopsEach community is unique in terms of its cemetery services. The following are some of the considerations related to trends and practices in Kamloops:

� The City has not had many requests for green burial, and based on existing practices and resources, it may take some time for green burial to gain traction here

� The primary demand in Kamloops is for single-depth interments, but that may be largely because the prices do not encourage double-depth burials

� The ossuary offers a low-cost alternative

� Many people walk and jog in the cemetery

� There have been no issues with vandalism

� There is an on-site office with a clerk

� Some events are held at the cemetery, including Memorial Day hosted by the Rocky Mountain Rangers, and some walking tours led by the museum

� The columbarium area is difficult to maintain

� The Italian community uses the mausoleum buildings extensively

� Six sets of cremated remains are permitted above a full burial

� There is no scattering garden

� There are memorial plaques for interments in the ossuary and those interred elsewhere

2.3 Forecast of Market and NeedsPOPULATION FORECASTTwo population forecasts were prepared for the City of Kamloops for the next 30 years (2020-2049) based on age-cohort population projections from BC Statistics and other available data sets. These two population scenarios are described below.

City of Kamloops 9

Popu la t ion Foreca st Scena r io 1Inputs

� BC Statistics P.E.O.P.L.E. 2019 forecast, by age cohort, for the Kamloops Local Health Area (LHA) to 2041 (current forecast horizon) with an extension (by age cohort) to 2049 using a ‘simple exponential smoothing’ forecast function in Excel (ETS)1

� Kamloops Population Growth (totals only) by Neighbourhood (2016-2039), as provided by the City of Kamloops

� 2016 Census population, by age cohort, for Kamloops Census Subdivision (CSD)

Approach

� Apply age-cohort breakdowns at the Kamloops LHA level (% of total by cohort, by year) to the total Kamloops population figures provided by the City to derive cohort-specific population estimates for each year

This approach retains population growth totals for Kamloops as provided by the City and creates a link between the City population forecast and the Kamloops LHA population forecasts. Differences were noted in the age profiles of Kamloops CSD and the Kamloops LHA2 which is not accounted for in this scenario.

1 Exponential smoothing predicts future values (population by cohort) using a weighted sum of past values. It uses an exponentially decreasing weight for past observations.

2 A review of 2016 census age breakdown for Kamloops CSD shows a greater representation of residents under 49 and over 80 in the Kamloops CSD compared to the Kamloops LHA.

Popu la t ion Foreca st Scena r io 2Inputs

� Same as Scenario 1, plus the following

� Calculation of age profile differences between Kamloops CSD in 2016 (per census data), and Kamloops LHA in the same year

Approach

� Apply the Kamloops LHA age profile proportions to total Kamloops CSD population in each year to the forecast horizon (as in Scenario 1)

� Adjust each age cohort in the Kamloops CSD from 2016 onward using the cohort-specific differentials between the CSD and the LHA in 2016

� Maintain the 2016 differentials for each future year, forecasting Kamloops CSD population based on projected growth in the Kamloops LHA

This approach accounts for real differences in age profiles between the Kamloops CSD and Kamloops LHA and it retains a link between these two forecasts; however, it does not maintain consistency with the Kamloops total population forecasts as provided by the City and results in higher projected growth overall.

Summar yIn Scenario 1, Kamloops’ population is projected to reach nearly 134,000 by 2049; in Scenario 2, the population in 2049 is projected to exceed 135,000. Scenario 2 results in considerable higher growth in the under 49 and over 80 age cohorts in the CSD and considerably lower growth between the ages of 50 and 64 compared in Scenario 1, which would have significant implications for cemetery demand given age-specific mortality rates discussed below.


Based on discussions with City staff, Scenario 1 population projections are used to project cemetery demand. This approach aligns with the recent Kamloops Population Growth by Neighbourhood (2016-2039).

The population forecast to 2049 in consolidated age groupings is shown in Figure 2.2.

F I G U R E 2 . 2 : C IT Y O F K A M LO O P S P O P U L A T IO N IN F O R E C A S T T O 2 0 4 9

Age Group 2020 2030 2040 2049

<25 24,638 24,986 25,126 25,215

25-49 30,077 37,827 41,599 44,697

50-64 20,714 18,607 23,270 27,989

65-79 15,481 20,591 20,023 19,091

80+ 4,530 7,883 12,553 16,986

Total 95,439 109,894 122,571 133,979

The projected breakdown of the City’s population by consolidated age group as proportions of the total is shown in Figure 2.3. The age profile of the City is expected to skew older over time.

F I G U R E 2 . 3 : C IT Y O F K A M LO O P S P O P U L A T IO N P R O P O R T IO N S B Y C O N S O L ID A T E D A G E G R O U P T O 2 0 4 9

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City of Kamloops 11

Mor ta li t y R ate sHistoric mortality rates from 2007-20183 were reviewed for the Thompson Nicola Regional District (TNRD) and rates of year-over-year age-specific mortality change were calculated using this 12-year time series. This rate was applied to project future age-specific mortality rates to 2049. These projected rates are applied to the population forecast for Kamloops to calculate mortality by age cohort. TNRD mortality rates are the best available information as both mortality rates and historical population by age cohort4 are required to calculate the rate of year-over-year age-specific mortality change.

Kamloops Resident DeathsThe forecast of mortality for City residents is determined by applying mortality rates by age to the projected population change in the City (Figure 2.4).

F I G U R E 2 . 4 : C IT Y O F K A M LO O P S M O R TA L IT Y F O R E C A S T T O 2 0 4 9 (N U M B E R O F M O R TA L IT IE S P E R Y E A R )

3 Statistics Canada. Table: 17-10-0140-01 Components of population change by census division, 2016 boundaries. Accessed on October 22, 2019.

4 BC Statistics, P.E.O.P.L.E. 2019 Forecast for Thompson Nicola Regional District

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Between 2020 and 2049, there are projected to be over 51,700 deaths of Kamloops residents. As the population ages, the number of deaths per 1,000 residents will increase each year – from 10.0/1000 in 2020 to 19.7/1,000 in 2049. On average the number of deaths among Kamloops residents is projected to increase by 3.6% per year.


Disposit ionsMethods of disposition for Kamloops residents are projected using available data for the Kamloops LHA between 2008 and 2011 (Figure 2.5). Based on the observed rate of change for full burial and cremated remains interments during the four-year period (showing cremation increasing and burial decreasing), a trend-based projection was prepared. Cremation as a means of disposition is capped at 90% of total from 2014 onwards.

F I G U R E 2 . 5 : K A M LO O P S L O C A L H E A LT H A R E A M E T H O D S O F D IS P O S IT IO N , 2 0 0 8 -2 0 1 1

YearBurial Cremation Other

# % # % # %

2008 126 14% 733 84% 11 1%

2009 99 12% 731 87% 10 1%

2010 109 13% 710 86% 10 1%

2011 95 10% 811 88% 16 2%

N o t e : O t h e r in c lu d e s r e m a in s n o t r e c o v e re d a n d d o n a t io n s a s p e r w i l l o f d e c e a s e d .

Hills ide Cemete r y Ma rke t Captu reOf the 51,700 projected deaths of Kamloops residents, only a share of the market is anticipated to be captured at Hillside Cemetery based on historic interments. The market capture rate of Hillside Cemetery represents the share of resident full burials and cremains interments expected to be interred at the cemetery as a portion of total estimated burials and cremations in Kamloops. The rate has fluctuated for both burial and cremation over the last six years (Figure 2.6).

F I G U R E 2 . 6 : H IL L S ID E C E M E T E R Y H IS T O R IC M A R K E T C A P T U R E R A T E

Year Burials Cremations

2014 96.4% 26.9%

2015 85.4% 20.7%

2016 81.9% 22.5%

2017 83.2% 24.2%

2018 74.3% 18.0%

2019 71.3% 20.2%

2015-2019 AVG 79.2% 21.1%

As recent trends are helpful in identifying future demand, the averages of the market capture rates for burial and cremation for 2015 through 2019 are used. The year 2014 is excluded as an outlier as the rates are significantly higher in that year than subsequent years.

City of Kamloops 13

Hills ide Cemete r y In te rment Foreca stThe forecast interment demand at Hillside Cemetery over the next 30 years is approximately 14,000 (Figure 2.7).

F I G U R E 2 . 7 : H IL L S ID E C E M E T E R Y F O R E C A S T IN T E R M E N T S , 2 0 2 0 -2 0 4 9

Year Burials & Crypt Entombments Cremations Total

2020 76 182 257

2021 79 188 267

2022 82 196 277

2023 86 205 291

2024 89 214 304

2025 92 222 314

2026 96 229 325

2027 100 239 338

2028 104 249 353

2029 108 260 368

2030 112 269 381

2031 116 278 394

2032 121 289 410

2033 126 301 427

2034 130 313 443

2035 135 324 459

2036 140 336 475

2037 146 349 495

2038 151 362 513

2039 156 375 531

2040 162 388 550

2041 167 400 567

2042 172 413 585

2043 177 425 603

2044 183 438 621

2045 188 451 640

2046 194 464 658

2047 199 477 676

2048 204 490 694

2049 210 503 712

Total Interments 2020-2049 4,099 9,829 13,928


In te rment NeedsProjected interment demand by service type at Hillside Cemetery is based on historical interment data for the cemetery, local trends provided by City staff, and observed trends in the regional market for new interment options (e.g., green burial). The assumptions used to project interment demand by service type are as follows:

� Demand for green burial will be derived from both burial and cremation markets starting with 0.5% annually, increasing to 2% over 5 years. The Green Burial Feasibility Study (Lees + Associates, 2012) report identified this demand shifting from the burial market only; however, recent trends indicate demand shifting from cremation as well

− Plots will be double depth

− 75% of plots will accommodate two sets of remains as pricing will encourage double depth use

� Demand for mausoleum interments will decrease by 1% each year for the first 10 years and then the number of annual interments per year will be held constant for the remaining 20 years to reflect anticipated reduced demand

� 75% of cremation plots will accommodate two sets of cremains (based on the maximum of two sets of cremains per plot)

� 20% of demand for interred cremains will be accommodated in family plots (where a full burial plot is used for a maximum of six cremation interments only)

� 75% of columbarium niches will accommodate two sets of cremains

Two scenarios are explored below that reflect different assumptions for full burial interments.

Scena r io 1 – Most ly Sing le Depth B u r ia l Assumptions

� Most residents choosing full burial will continue choosing single depth full burial plots; there will continue to be minimal demand for double depth full burial resulting in approximately two interments per year in a double depth plot.

� No new double depth plots will be required as demand will not exceed the existing inventory.

Projected interments and space demands to accommodate all proposed interment types over the next 30 years in Scenario 1 are shown in Figures 2.8 and 2.9.

City of Kamloops 15

F I G U R E 2 . 8 : P R O J E C T E D IN T E R M E N T D E M A N D (5 -Y R IN C R E M E N T S ) - S C E N A R IO 1 : M O S T LY S IN G L E D E P T H B U R IA L

Interment Service

2020- 2024

2025- 2029

2030- 2034

2035- 2039

2040- 2044

2045- 2049

Projected 30-Years

2020-2049

Full Burial (Single Plot) 323 413 516 634 760 878 3524

Full Burial (Double Plot) 10 13 15 20 24 27 109

Mausoleum Crypt (Single) 74 64 61 60 60 70 389

Total Full Burial & Mausoleum

407 490 592 714 844 975 4022

Green Burial (Double Green Plot)

13 34 42 50 58 68 265

Total Green Burial 13 34 42 50 58 68 265

Cremation Plot 584 705 852 1027 1213 1403 5784

Cremains Burial in Family Plot

194 235 284 343 404 468 1928

Columbarium / Mausoleum Niche

135 164 199 239 283 327 1347

Scattering / Ossuary* 59 71 85 103 121 140 579

Total Cremains Interments

972 1175 1420 1712 2021 2338 9638

Total All Interments 1392 1698 2054 2476 2923 3381 13925

* S c a t t e r in g a n d o s s u a r y in t e rm e n t s a re a s s u m e d t o b e t h e s a m e fo r t h e p u r p o s e s o f p ro je c t in g in t e rm e n t d e m a n d a n d n e e d a s t h e s e o p t io n s a re s im i la r. A s ig n i f ic a n t n u m b e r o f in t e rm e n t s c a n b e a c c o m m o d a t e d in e i t h e r s o lo n g a s t h e o p t io n is a v a i la b le . I f o n ly o n e o p t io n is a v a i la b le , i t i s a s s u m e d in d iv id u a ls lo o k in g fo r a s e r v ic e o f t h is t y p e w i l l c h o o s e t h e o n e a v a i la b le .


F I G U R E 2 . 9 : P R O J E C T E D S PA C E D E M A N D S (5 -Y R IN C R E M E N T S ) - S C E N A R IO 1 : M O S T LY S IN G L E D E P T H B U R IA L

Interment Service

2020- 2024

2025- 2029

2030- 2034

2035- 2039

2040- 2044

2045- 2049

Projected 30-Years

2020-2049

Full Burial (Single Plot)* 420 530 658 737 881 1018 4245




9 21 26 31 37 42 165

Cremation Plot 365 441 533 642 758 877 3615

Columbarium/Mausoleum Niche

84 103 124 149 177 204 842

Scattering / Ossuary 59 71 85 103 121 140 579

Total Demand 1016 1236 1494 1732 2046 2366 9889

* In c lu d e s d e m a n d fo r s in g le p lo t s fo r u s e a s f a m ily c r e m a t io n p lo t s

The total new inventory required for the next 30 years to meet interment demand in Scenario 1 is shown in Figure 2.10.

F I G U R E 2 . 1 0 : IN V E N T O R Y R E Q U IR E D T O M E E T P R O J E C T E D D E M A N D (1 0 -Y R IN C R E M E N T S ) - S C E N A R IO 1 : M O S T LY S IN G L E D E P T H B U R IA L

Interment Option Existing

New Inventory RequiredTotal New Inventory Required (30 years)2020-2029 2030-2039 2040-2049

Full Burial (Single Plot) 230 720 1395 1900 4015

Full Burial (Double Plot) 66 0 0 0 0

Mausoleum Crypt (Single) 0 138 121 130 389

Green Burial (Double Green Plot) 0 30 57 79 165

Cremation Plot 1180 0 800 1635 2435

Columbarium/Mausoleum Niche 139 48 274 381 703

Scattering / Ossuary 0 129 188 262 579

Total 1615 1065 2834 4386 8286

City of Kamloops 17

Scena r io 2 – Incent iv ized Double Depth B u r ia lAssumptions

� Demand for double depth burial as a percentage of full burials (both caskets and crypts) will increase from 3% in 2020 to 13% in 2022. After 10 years (2031), demand will increase 10% every other year to reach 50% of total full burial demand by 2037.

− Initially 50% of plots will accommodate two sets of remains, increasing to 75% over time as demand is expected to increase over time due to incentivized pricing.

Projected interments and space demands to accommodate all interment types over the next 30 years in Scenario 2 are provided in Figures 2.11 and 2.12.

F I G U R E 2 . 1 1 : P R O J E C T E D IN T E R M E N T D E M A N D (5 -Y R IN C R E M E N T S ) – S C E N A R IO 2 : IN C E N T IV IZ E D D O U B L E D E P T H B U R IA L

Interment Service

2020- 2024

2025- 2029

2030- 2034

2035- 2039

2040- 2044

2045- 2049

Projected 30-Years

2020-2049

Full Burial (Single Plot) 302 370 397 344 392 453 2258



Total Full Burial & Mausoleum

408 489 592 714 844 976 4023


13 34 42 50 58 68 265

Total Green Burial 13 34 42 50 58 68 265

Cremation Plot 584 705 852 1027 1213 1403 5784

Cremains Burial in Family Plot

194 235 284 343 404 468 1928


135 164 199 239 283 327 1347


Total Cremains Interments

972 1175 1420 1712 2021 2338 9638


Interment Service

2020- 2024

2025- 2029

2030- 2034

2035- 2039

2040- 2044

2045- 2049

Projected 30-Years

2020-2049

Total All Interments* 1393 1698 2054 2476 2923 3382 13925

* To t a l in t e rm e n t d e m a n d fo r S c e n a r io 2 m a y n o t e x a c t ly m a t c h t h e t o t a ls in S c e n a r io 1 d u e t o r o u n d in g

F I G U R E 2 . 1 2 : P R O J E C T E D S PA C E D E M A N D S (5 -Y R IN C R E M E N T S ) – S C E N A R IO 2 : IN C E N T IV IZ E D D O U B L E D E P T H B U R IA L

Interment Service

2020- 2024

2025- 2029

2030- 2034

2035- 2039

2040- 2044

2045- 2049

Projected 30-Years

2020-2049

Full Burial (Single Plot)* 399 488 539 447 513 593 2979




9 21 26 31 37 42 165

Cremation Plot 365 441 533 642 758 877 3615


84 103 124 149 177 204 842


Total Demand 1006 1214 1439 1618 1911 2210 9398

* In c lu d e s d e m a n d fo r s in g le p lo t s fo r u s e a s f a m ily c r e m a t io n p lo t s

City of Kamloops 19

The total new inventory required for the next 30 years to meet interment demand in Scenario 2 is provided in Figure 2.13.

F I G U R E 2 . 1 3 : IN V E N T O R Y R E Q U IR E D T O M E E T P R O J E C T E D D E M A N D (1 0 -Y R IN C R E M E N T S ) – S C E N A R IO 2 : IN C E N T IV IZ E D D O U B L E D E P T H B U R IA L

Interment Option Existing

New Inventory RequiredTotal New Inventory Required (30 years)2020-2029 2030-2039 2040-2049

Full Burial (Single Plot) 230 657 986 1106 2749

Full Burial (Double Plot) 66 0 235 528 763

Mausoleum Crypt (Single) 0 138 121 130 389


0 30 57 79 165

Cremation Plot 1180 0 800 1635 2435

Columbarium / Mausoleum Niche 139 48 274 381 703

Scattering / Ossuary 0 129 188 262 579

Total 1615 1002 2660 4121 7783


3 .0 Cem e t e r y Con ce p t P la n3.1 Site Inventory and Ana lysis

Map 1 provides a graphic summary of the site inventory. The following is some supporting information:

� Part of the undeveloped area is steep sagebrush hillsides that range in slope from 20% to over 40%

� The terrace formed of newly placed fill covers a large portion of the northwest part of the cemetery

� Other relatively flat areas also exist

� A water collection area exists north of the cemetery office and maintenance yard

� An area north of the eastern mausoleum has been identified for potential expansion of the mausoleum

� Existing water lines extending through the cemetery south and east of the reservoir

The site has the following strengths and challenges:

STRENGTHS � The sagebrush slopes form an attractive,

natural, and uniquely Kamloops backdrop for the cemetery

� The terrace formed of newly placed fill is suitable for in-ground interments, as are other relatively flat areas

� The water collection area has the potential to become an attractive pond feature that can also accommodate stormwater

CHALLENGES � The sagebrush slopes are too steep and

sensitive to be used for interments

� The cemetery needs to accommodate the potential for overland flow from the Notre Dame Reservoir

� The cemetery needs to allow space for potential angle parking along the entire north boundary

� Access needs to be retained to existing water lines

The locations with the best potential for cemetery development are outlined in orange on Map 1.

City of Kamloops 21

U n d e v e lo p e d P o r t io n o f C e m e t e r y


3.2 Potent ia l Concept P lanThe potential concept plan is based on the cemetery needs identified previously and the site inventory and analysis (Map 2). This is a high-level concept plan, as the primary purpose is to estimate the years of capacity remaining at Hillside Cemetery. The concept plan has the following characteristics:

� Extension of the western north/south road along the base of the terraced area, tying back to the central cemetery road south of the crematorium

� An additional loop road off the road above that extends around the terrace at the base of the sagebrush slope

� Full burial areas within these road loops and on the flatter terrain to the north

� Cremation plots on the flatter land on either side of the overland flow route

� A stormwater pond feature in the low-lying, wet area north of the office and maintenance area

� A pathway/service road around the north perimeter of the stormwater feature, with double-sided columbarium walls along the path, and green burial plots adjacent to the north

� An extension of the maintenance area to the west on the other side of the road

� A loop pathway with double-sided columbarium walls along it (24 niches per side), and a memorial tree grove in the centre, south of the new maintenance area

� A new service road in the southwest portion of the cemetery that ends with a hammerhead at the steeper slope

� Full burial plots west of the road and cremation plots east of it

� Viewpoint at the top, including alternate steps and accessible pathway up, area with special paving and benches, single-sided columbarium walls (24 niches each) with trees behind to form a backdrop for a quiet lawn space, scattering gardens on the sides, opportunity for public art

The potential concept plan has sufficient inventory for around 30 years based on needs between Scenarios 1 and 2 as shown in Figure 2.14. The distinction between single and double-depth plots is not shown at this stage. Mausoleum needs are excluded because they will be accommodated through construction of a new building. Scattering numbers are not listed below because there is sufficient space to accommodate any number of those.

City of Kamloops 23

F I G U R E 3 . 1 : IN V E N T O R Y O F P L O T S A N D N IC H E S IN S C E N A R IO S 1 A N D 2 A N D P O T E N T IA L C O N C E P T P L A N

Interment Option Scenario 1 Needs

Scenario 2 Needs

Potential Concept Plan

Full Burial (Single Plot) 4015 2749 3998

Full Burial (Double Plot) 0 763 Part of above

Green Burial (Double Green Plot) 165 165 165

Cremation Plot 2435 2435 2435

Columbarium/Mausoleum Niche 703 703 720

Total 7318 6815 7611

3.3 Nex t StepsThe following are additional tasks that may be included in future phases of the cemetery planning:

� Workshop with stakeholders potentially including local funeral homes, faith leaders, and service clubs

� Community survey

� Community open house

� Multiple concept plan options for Hillside Cemetery

� Plan for improvement and potential infill of Pleasant Street Cemetery

� Capital and operating cost estimates

� Business plan that projects revenues and costs showing cash flow over time

� Detailed design

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PARKS MASTER PLAN SURVEY SUMMARY

Do You Have Any Religious Beliefs That Will Impact Your Memorial Preference?

Yes

No

Attachment "B"

Are You Planning to be Interred at Hillside Cemetery?

Yes

No

I don'tknow

Do You Own A Plot?

Yes

No

I don'tknow

Is the Plot Located at Hillside Cemetery?

Yes

No

What Type of Interment Are You Most Interested In?

Full burial

Cremation plot

Columbarium

Mausoleum

Ossuary

Scattering garden

None of the above

0

10

20

30

40

50

60

Green Burial FamilyColumbaria

ScatteringGarden

Double DepthPlot

Level of Interest in Interment Types

Not applicable

Low

Medium

Strong

If a double-depth plot was less expensive than a side by side plot, would you choose

double-depth?

Yes

No

Not applicable

Would you like to see further development at Pleasant Street Cemetery to increase its

capacity?

Yes

No

I don't know

Was the draft master plan thorough enough?

Yes

No

I didn't read it

Was there anything you would like to see added to the plan?

Yes

No

I didn't read it

CEMETERY MASTER PLAN UPDATE - CivicWeb

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