RR-3
POLICY REPORT
LICENSING
Report Date:
Contact:
Contact No.:
RTS No.:
VanRIMS No.:
Meeting Date:
TO:

Vancouver City Council

FROM:

Chief Licence Inspector

SUBJECT:

Taxi Service Review and Report Back

October 13, 2015
Andreea Toma
604.873.7545
11077
08-2000-20
October 20, 2015

RECOMMENDATION
A.

THAT Council receive this report with an update on recent consultations with
the Vancouver Taxi Roundtable and other key stakeholders on the delivery of
taxi service in the city (coined the Vehicle for Hire Dialogues), thank the
participants for their contributions, and urge the Ministry of Transportation, the
Passenger Transportation Board, YVR, the taxi industry, TransLink and other
stakeholders to take steps to establish a renewed regional policy direction in
the province that balances the needs of travellers with the requirement for a
stable, sustainable taxi service in the context of new technology.

B.

THAT Council approve the following amendments to the Vehicles for Hire Bylaw and directions to staff:
Safety, First Aid & Customer Service
B1 Require taxi drivers to obtain Occupational First Aid Level One
certification every three years.
B2 Require taxi drivers to take refresher training every five years.
B3 Require taxi drivers to assist passengers with entering the taxi and
loading/unloading their belongings.

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Accessible Taxi Supply
B4 Support the VTA to appeal to the PTB to review their 2014 decision
and approve 58 additional accessible taxis and change licence
conditions for all 78 to remove the “one-for-one” replacement
requirement.
B5 Require accessible taxi drivers to:
i) wait at least three minutes for the passenger to arrive at
the pickup point;
ii) accompany passenger as needed (e.g. provide “door to
door” service);
iii) carry passenger’s items to door; and,
iv) in the event of medical emergency, wait for paramedics to
arrive.
B6 Prepare a region-wide, long term strategy for accessible taxi supply
(see broader discussion of a regional taxi model in Recommendation B17
below).
Downtown Entertainment District
B7 Lift the temporary moratorium on new taxi licences.
B8 Issue permanent licences to the local taxi companies for 99 peakperiod, part-time licences (currently issued on a temporary basis).
B9 Issue permanent licences to the 38 suburban taxis to pick up in
Vancouver’s Downtown Entertainment Area during weekend peak times,
subject to regulations (e.g. fees, operating requirements).
B10 Examine opportunities to establish destination-themed taxi stand
“hubs” (e.g. Surrey-bound taxis in one stand, North Shore-bound taxis in
another) to better connect passengers with drivers motivated to carry
them.
Enforcement
B11 Increase enforcement levels by:
1) requesting staff to work with Vancouver Police Department
(VPD) to conduct additional on-road spot checks (and issue
fines to violators); and,
2) investigating options for using data monitoring as an
enforcement tool, particularly to address illegal pickups (see
discussion in next section, below, recommendation B13).
B12 Increase the fines (from $250 to $500) for taxis operating without a
licence (S. 7(1) of the Vehicles for Hire Bylaw) or in violation of their
locational or temporal conditions.

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Advanced Data Monitoring
B13 Investigate and liaise with the taxi industry, PTB, Ministry of
Transportation & Infrastructure and other regulators in the region, and
report back with a plan to implement a taxi data monitoring system,
including necessary bylaw amendments and estimated budget.
Environmental Performance
B14 Examine options for phasing in requirements for limousines to meet
a minimum environmental performance standard for fuel efficiency.
B15 Examine options to enable taxi sharing for certain trips (as per
Action M 6.1.4 in the Transportation 2040 Plan).
B16 Examine how taxi policy can support the integration of the
Compass Card system with taxis (as per Action T 6.2.4 in the
Transportation 2040 Plan).
Regional-level Taxi Planning
B17 In liaison with the Vehicle for Hire industry, key users, other Metro
Vancouver municipalities and the PTB, examine options for developing
a regional context for informing planning, integration and regulation of
the sector, including licensing implications.
B18 Work with participants in the Vehicle for Hire Dialogue to develop a
funding platform to enable them to continue the work of the process
that is underway and come back to Council with a full scope, timing and
funding partners.
Ridesharing
B19 In liaison with other local governments in the region, the PTB,
ICBC, the taxi and ridesharing industries as well as key user stakeholder
groups (e.g. disabled community, seniors, the Port and tourism),
examine the issues and opportunities for rideshare in Metro Vancouver,
and report back to Council with findings.
Housekeeping Updates
B20 Increase the fee for a replacement plate to $34.
B21 Enable taxi licence fees to be paid on a pro-rated basis.
C.

THAT the Director of Legal Services be requested, should the Director deem it
advisable, to bring forward by-law amendments generally in accordance with
Council direction arising from this report.

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REPORT SUMMARY
This report responds to Council direction from one year ago to consult with vehicle for
hire (hereafter “VFH”) industry stakeholders and consider opportunities to modernize
taxi regulations. Having done so, staff are bringing forward 21 recommendations that
strive to improve public safety and customer service, broaden accessibility, reduce
environmental impact and, above all, ensure access to vehicle-for-hire services.
COUNCIL AUTHORITY/PREVIOUS DECISIONS
The Motor Vehicle Act (Section 36, ss. 11) and the Vancouver Charter give Council the
authority to regulate taxis through the Vehicles for Hire By-Law (the “By-law”). The
purpose of the By-law is to ensure a high level of passenger safety, security and
customer service as private transportation services are an essential component of the
City’s transportation network, alongside publicly-operated mass transit.
On October 1, 2014 Council asked staff to consult with the Taxi Roundtable and other
stakeholders and report back to Council on:
1. measures necessary to expand service, while ensuring the industry responds to
the needs of consumers and stakeholders in the tourism, hospitality and the
disability community through innovation and best-in-class standards for
environmental standards, safety and service;
2. a process to respond to the PTB decision to allow suburban taxis to work in
Vancouver during certain periods; and,
3. measures to ensure customers achieve the full benefits of new "ride-sharing"
technology without undermining the existing industry's standards for safety,
accessibility, driver training and green technology.
Council also implemented a moratorium on new taxi licences that will expire on
October 31, 2015, and asked staff to report back prior to this date.
CITY MANAGER'S/GENERAL MANAGER'S COMMENTS
The Acting City Manager recommends approval of the recommendations contained in
this report.
REPORT
Background
Vehicles for hire are a vital part of Vancouver’s transportation system as an integral
element to supporting flexible personal mobility across the region. They provide first
and last kilometre service for transit trips and serve as a supplementary on-demand
service to TransLink’s HandyDART for people with a disability and those for whom

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walking, cycling or conventional public transit are not feasible. Taxis offer a flexible,
cost-effective and greener alternative to personal vehicle use and significantly reduce
the risk of drunk driving.
Some form of taxi transportation has been available for many hundreds of years;
however, the first known taxi regulations were introduced in England in 1635 in order
to address taxi-related traffic congestion 1. Many countries, including the United
States, Sweden, Australia, New Zealand, Korea, Ireland, Japan and Canada, have
followed suit with their own taxi regulations 2. While the regulatory structures differ
considerably around the world, some of the ongoing issues continue to be adequate
taxi supply responsive to demand, territorial boundaries 3, driver training and the
passenger experience.
The role of regulating taxis is shared between BC’s provincial regulatory body (the
Passenger Transportation Board, or “PTB”) and the City. The licensing process is
application-driven; in other words, the provincial and municipal regulators do not
currently initiate increases in taxi supply unless a proposal is first brought forward by
a taxi service provider. The PTB issues approval for additional taxis based on their
evaluation of: 1. public need for service; 2. applicant fitness and capability; and, 3.
sound economic conditions in the industry.
The City sets a limit on the number of taxis that may operate in the City along with
requirements for vehicle age and condition, operational standards (e.g. disabled
passengers, lost and found), and safety (e.g. driver licensing and vehicle
identification). The City may issue taxi licenses to companies only once the PTB has
first issued licenses allowing taxis to operate in Vancouver (S. 317.1 of the Charter).
Approval from both authorities is required before a taxi may provide transportation
service to passengers.
The main role of the PTB is to determine the number of licences, while the City’s main
role is to ensure quality of service. The PTB and the City hold dual regulatory
jurisdiction as established in a Court ruling issued earlier this year.
Context
For many years the PTB (and subsequently the City) increased taxi supply by
distributing new licences among the existing Vancouver-based companies. In 2012 the
PTB changed course and approved 38 part time licences for surburban companies to
pick up fares in Downtown Vancouver during peak weekend times; however, they did
not issue reciprocal rights for Vancouver companies to pick up in suburban areas. This
fundamental change in the overarching policy was opposed by the Vancouver taxi
companies and challenged in court. Initially the City refrained from issuing the 38
licences pending the appeals and legal proceedings. In October 2014, shortly after the
1

Haydon, Andrew et al, Taxi Industry Reform: Report for the Ottawa Transition Board, September
11, 2000, p 11
2
Kang, Choong-Ho, Taxi Deregulation: International Comparison, Ph.D. Dissertation, Institute for
Transport Studies, University of Leeds, 1998 p. 15
3
Lanyon, Stan, A Study of the Taxi Industry in British Columbia, Ministry of Transportation and
Highways, 1999, p 82-83. GVTA refers to the Greater Vancouver Transit Authority.

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last appeal was resolved, Council established a temporary moratorium on the issuance
of new taxi licences until broad stakeholder consultation and best practices research
was conducted.
This all took place against the backdrop of notable increases in ridesharing and the
emergence of new technologies, like those offered by Uber (note: Uber announced it
would launch its service in BC in 2012, but currently is not operating). The Vancouver
taxi industry continued to improve safety and accessible service, and make
investments in new technology. Most recently they launched a new smartphone
application, called E-Cab, that allows consumers to summon the nearest taxi available
in Vancouver, rate their driver and pay online.
In this report, staff are recommending immediate, short term and long term necessary
changes to the City’s Vehicle for Hire regulations. Following in-depth consultation for
the last six months, it has become clear that a much deeper assessment is required by
major stakeholders in the sector, including YVR, the tourism industry, the Ministry of
Transportation, TransLink and other stakeholders to chart an appropriate direction
forward. This work is urgently required and staff propose that Council call on all these
stakeholders, particularly the Ministry, to collaborate on a continuation of the
Dialogue process as described below.
Consultation
In order to respond to Council’s motion, staff would ordinarily consult with various
stakeholders individually to receive feedback, assess the information and then
formulate recommendations for Council consideration. The Vehicle for Hire Dialogue
provided a platform for industry providers, users, the City and Provincial regulators to
engage directly with one another, thereby achieving a higher degree of common
recognition of the challenges and opportunities facing the sector. This is particularly
important given the degree of change facing the sector, the changing expectations of
users, and the need for regulators in general (and the City in particular) to develop
responsive and effective approaches. The City retained the services of Glenn
Sigurdson, an Adjunct Professor and Executive in Residence of the SFU Beedie School
of Business. Mr. Sigurdson has a national reputation in Canada for facilitating
consensus amongst stakeholders in sectors facing significant change.
Mr. Sigurdson and his colleague, Jessica Bratty, have deep experience and a long track
record in leading initiatives of this nature in a broad range of contexts. Their work
over the last few months has made clear that addressing the challenging goals
contained in Council’s motion necessitated facilitation professionals.
Vehicle for Hire Dialogues
In April 2015 Glenn Sigurdson and Jessica Bratty engaged with key stakeholders in the
taxi and transportation sector: vehicle for hire providers, users, institutional
stakeholders and regulators (see Appendix A for a complete list) to explore those
stakeholders’ interest in developing a process to work together to seek agreement on
a set of recommendations that respond to the direction of City Council.

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The purpose was to provide an opportunity for diverse representative perspectives
from different communities of interest to exchange ideas. The Dialogues searched for
new and innovative approaches to address the challenging questions related to the
Vehicle for Hire sector and arrive at a vision for the future together. The City’s role is
as enabler and as the regulator to protect the public interest. Staff supported and
encouraged stakeholders to take the lead and identify how best to transition through
the period of change currently facing the VFH sector in a way that helps to meet the
City’s mandate and the public interest.
The Vehicle for Hire Dialogue process proceeded through distinct phases. The first
phase from April to June was directed at ensuring there were clear expectations
among participants as to their willingness to engage and the basis upon which they
were doing so. A set of ground rules was established and agreed to by all parties on
(June 16, 2015) and are made available at http://bit.ly/1VQw0Rj
Concurrent with the ground rules were discrete working group efforts directed at
understanding of supply and demand dynamics, service standards and regulatory
alignment. There have been five Inclusive Dialogue Sessions (with all participants) as
well as 14 meetings of smaller working groups (made up of representatives from
industry, regulators and users).
In mid-August 2015 Dr. Dan Hara was retained by the process facilitators to inform and
support the Dialogue and develop a discussion paper to provide a framework of choices
for understanding supply and demand, available options, comparisons to other
jurisdictions, and technology platforms for monitoring and enforcement. The paper
was shared with the group and provides important facts and context for the Vancouver
area. It is by no means conclusive. This paper, still in draft form, has been reviewed
and endorsed by the Vehicle for Hire Dialogue participants. His draft report and
associated appendix are made available at http://bit.ly/1L9nGJp.
Intensive efforts to mediate a resolution on licensing of suburban operators inside the
City were not successful. Although consensus was not achieved on this issue, the
process was able to open communication channels among a diverse range of interests.
On September 3, 2015 the Vehicle for Hire dialogue agreed that discussions underway
are helpful and should continue.
Strategic Analysis
Traditionally regulators have limited the number of taxi licences available, and in
exchange, regulators have required the taxi industry to provide service that meets
desirable public objectives. This arrangement has enabled the taxi industry to remain
viable, even though they are obligated to accept economically unfavourable fares
(e.g. during slow periods, accessible trips, intoxicated passengers), provide consistent
rates (regardless of demand or higher costs to the taxi provider), and invest in ecofriendly vehicles (e.g. hybrids). This quid pro quo approach has been a win-win for
government regulators (seeking to meet the public interest), the industry (seeking
certainty and profitability) and the passenger (seeking anytime trips at a reliable
price). A robust supply of accessible taxis and trained drivers is also made possible

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using this approach 4. As well, the constraint on the total number of taxis on the
streets helps to ensure road safety and prevent traffic congestion in busy areas 5.
Vancouver has a mix of taxis serving the disabled and able-bodied, as well as
additional taxis that serve the peak-demand periods (see Table 1 and Figure 1 below).
Table 1: Current Taxi Supply
Regular Taxis
Vancouver Taxi
Companies (4)

475 full-time

113

Total
588

1

99

Total Vancouver

687

99 part-time

Other Metro
Vancouver Companies
(29)

Accessible Taxis

1,346 full-time

307

Total (33)

1,653

2,340

1

Temporary taxis operating 3 pm – 6 am on weekend evenings only
Note: there are active 2,987 chauffeur’s permits (i.e. licensed vehicle for hire drivers) in Vancouver, or a ratio of 4.3 licensed drivers for each taxi.

Figure 1: Accessible Taxi Licences vs. Regular in Vancouver

Accessible
17%

Regular
83%

Like numerous other jurisdictions, the Ministry of Transportation & Infrastructure (with
PTB approval) and the City issue a limited number of taxi licences at a nominal cost (in
Vancouver, $548/year), subject to service providers meeting PTB and City regulations.
4

According to Analysis of Accessible Taxi Service in Vancouver (Chow, Garland, p. 8, 2014), accessible
taxis carry disabled passengers for only 12 percent of total trips, indicating that accessible supply in
Vancouver is significant.
5
According to taxi expert Garland Chow, “Excess capacity can lead to a competitive environment
where… unsafe operating practices are inadvertently encouraged.” From“Peak Demand and Supply of
Taxis in Vancouver’s Downtown Entertainment District”, 2011.

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Compared to other jurisdictions, the size of Vancouver’s taxi supply is middle of the
road:
Figure 2: Taxi Supply

Sources: Statistics Canada, individual municipalities, and Hara 2015

From 1989 to 2015 the annual growth in Vancouver’s taxi supply (1.7 percent)
exceeded population growth (1.3 percent):
Figure 3: Taxi Licences and Population in the Vancouver (City)

Note: for purposes of readability, date intervals are unequal.
Sources: Licences and Inspections; Statistics Canada

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Compared with other jurisdictions in Canada, taxi fare rates in Vancouver are among
the lowest (see Figure 4 and Figure 5). Likely for this reason, fare levels are rarely
identified as an issue in customer feedback on the industry.
Figure 4: Taxi Fare Comparison (short trip*)

*A short trip is based on a trip from Canada Place to Oakridge Centre (12 minutes driving time, 6 minutes idling time, for a
distance of 6.8 km)

Figure 5: Taxi Fare Comparison (airport trip*)

An airport trip is based on a trip from YVR Airport to the Fairmont Hotel at weekend peak time carrying baggage (21
mins driving, 12 mins idling, for distance of 14.1 km).

In the past few years, the vehicle-for-hire landscape has been changing. Despite
comparatively high performance in taxi supply and rates, the public’s expectation for
taxis is increasing. People are seeking greater convenience, shorter waits and higher
quality vehicles. The aging population relies more and more on conventional and
accessible taxis to meet their transportation needs. Furthermore, technological
advances (electric cars, app-based hailing platforms) are changing both what’s
possible and what’s necessary to meet taxi service demand. Transit, bicycling, car
sharing (e.g. Modo, car2go) and ridesharing (e.g. Uber, Lyft) are improving the viability
of car-free lifestyles supplemented by taxi service.
The Transportation 2040 Plan recognizes that for-hire vehicles fill the gap when
walking, cycling, and public transit are not options. The Plan supports improved taxi
service by setting requirements (e.g. vehicle age and condition, driver licensing and
identification, and vehicle inspections). The City uses intelligent regulation to set

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requirements for safe, efficient and accessible service, while ensuring that the
Vancouver taxi industry continues to be a viable and highly effective part of the
transportation network. The City’s goal is modern, forward-looking taxi service that
enables:
1.
2.
3.
4.
5.

Safe Operation
Access for all (including disabled or low-revenue trips)
Reliability and quality service
A prosperous local economy
Fairness and balance for all taxi industry stakeholders

The City aims for regulatory alignment with the PTB and the Ministry of Transportation
& Infrastructure to enable the exploration of long-term strategies on how to best serve
the needs of Vancouver residents and visitors alike.
VANCOUVER TAXI INDUSTRY IMPROVEMENTS
Any discussion of the state of taxi service in Vancouver must start with the many
ongoing improvements completed (or soon to be completed) by the local industry
voluntarily:
Safety
– Convene safety committee meetings
Issues Resolution
– Discipline drivers (suspensions or mandated training) for infractions of City
regulations or company policy
– Deal with complaints and respond to complainants directly (non-serious
matters)
– Forward serious matters to Vancouver Police
Service Levels
– New technology platforms one of which is E-Cab: a smartphone app that allows
passengers to summon the nearest available cab from any of the four
Vancouver companies
– Provide staff to assist in loading and directing passengers Downtown during
peak times
– Require drivers to complete in-house, one-day training (i.e. in addition to the
required TaxiHost Pro course)
– Provide automated phone alerts and a text-based request option
– Driver pay cheques issued on a twice-monthly (rather than once-monthly) basis
to discourage drivers from refusing credit card payments from customers
– Provide bike racks on taxis (to be installed on 10 percent of fleet by year’s end)
ISSUES AND OPPORTUNITIES
As noted in the preceding sections, the vehicle for hire industry is changing, as are
customer service expectations and technological innovation. These changes have
precipitated issues to address as well as opportunities to grasp. The following sections

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describe the key issues and opportunities, and make recommendations for Council’s
consideration.
Note that timing estimates are provided as follows:
Immediate
Short Term
Long Term

Within one month
One to three months
Over three months

Opportunity: Safety & First Aid (Recommendation B1)
As the city’s population ages, they will rely more on taxis for mobility and pose a
higher risk of medical emergency while doing so. A taxi driver may be called upon to
provide assistance to someone requiring immediate medical attention. To prepare
them for this possibility, some jurisdictions require taxi drivers to have a basic
understanding of first aid.
Saint John’s Ambulance teaches Occupational First Aid (OFA) that covers:
•
•
•
•
•
•

emergency scene management
minor wound care
clearing airway obstructions
cardiopulmonary resuscitation
treating shock and severe bleeding, and
handling other medical emergencies

The Level One OFA course is offered regularly and costs $101.

Staff Recommendation
B1 Require taxi drivers to obtain OFA Level One
certification every three years

Timing
Short Term

Issue: Safety & Customer Service (Recommendation B2 and B3)
Although Vancouver has not conducted a representative opinion survey, it is possible to
gain a sense of issues with taxi service from a recent survey 6 of taxi passengers in the
Metro Vancouver region:




6

long wait times (37 percent)
indirect route (29 percent)
reckless driving (24 percent)
no show (17 percent)

Insights West, Metro Vancouver Attitudes to Transportation Options, 2014.

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 unclean vehicle (16 percent)
Note: as the survey captured opinions of passengers in all of Metro Vancouver, the opinions on the service of non-Vancouver-based taxis
is included in this data.

Calls to the City (via 311) over the past three years have been infrequent. A total of 55
calls were recorded, with the majority about ridesharing (discussed in greater detail
later in this report) and driving infractions (e.g. parking, speeding) by taxi drivers.
Yellow Cab, the largest taxi company in Vancouver, kindly shared their feedback data
with the City:
Figure 6: Feedback to Yellow Cab Via Compliments/Complaints Phone Line
Long wait/no show
5%
Refused Service
7%

Compliment
3%

Other
15%

Driving infractions
43%

Courtesy levels
27%

Note: As Yellow Cab provided over 600,000 trips during this same period, the complaint rate is one call for
every 3,600 trips provided.

Source: Yellow Cab, June 1 to September 2, 2015

Yellow Cab received 167 calls over a three month period. While some callers paid
compliments, the majority were regarding driving infractions (e.g. speeding, not
signalling) and driver courtesy levels (rude comments, failure to assist). These issues
may be improved with industry and City-led measures such as driver training and
additional enforcement.
An examination of regulations in other jurisdictions found that some require taxi
drivers to take refresher training. The Justice Institute presently offers the 30 hour
TaxiHost Pro course that all Vancouver drivers must take pre-employment. The
Institute is currently developing a post-employment refresher course that would last
one day and cost $100. They advised that it would be beneficial to take this course
each five years.

Staff Recommendations
B2 Require taxi drivers to take refresher training every
five years

Timing
Immediate

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B3 Require taxi drivers to assist passengers with entering
the taxi and loading/unloading their belongings

Immediate

Issue: Accessible Taxi Supply (Recommendations B4 to B6)
Members of Vancouver’s disabled community report that accessible taxi service is high
quality (e.g. vehicles are safe, drivers are knowledgeable and courteous), but that
wait times are too long. For patrons needing an accessible taxi, this represents more
than lost time: it may mean that medical appointments or medicine doses are missed,
washroom visits are delayed, and chronic pain sufferers are left with additional
discomfort. A reasonable target would be for disabled passengers to wait no longer
than an able-bodied passenger for a taxi to arrive, and that average wait times should
be short most of the time. A recent study finds that response times in Vancouver are
twice as long for accessible taxis as regular taxis. Over 30 percent of disabled
passengers wait more than 15 minutes for an accessible taxi 7; this response time falls
well short of the PTB’s indicator of reasonable service (i.e. no more than eight percent
of passengers waiting longer than 15 minutes).
Supported by the findings of the aforementioned study, the Vancouver Taxi Association
applied to the PTB for 78 additional accessible taxi licences. In December 2014 the
PTB approved 20 licences and created a “one-for-one” stipulation that discourages use
of these new accessible vehicles during peak times 8.
Staff Recommendations

7

Timing

B4 Support the VTA to appeal to the PTB to review their
2014 decision and approve 58 additional accessible taxis
and change licence conditions for all 78 to remove the
“one-for-one” replacement requirement.

Immediate

B5 Require accessible taxi drivers to:
i)
wait at least three minutes for the
passenger to arrive at the pickup point;
ii)
accompany passenger as needed (e.g.
provide “door to door” service);
iii)
carry passenger’s items to door; and,
iv)
in the event of medical emergency, wait for
paramedics to arrive.

Immediate

Hara and Associates, “Assessment of Public Need for 78 Vancouver Accessible Taxi Licences”, 2014.
The PTB required that during weekend peak times, the 20 new accessible taxis must be removed from
service, or failing that, a commensurate number of conventional taxis must be removed from service
(i.e. a “one-for-one” requirement).

8

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B6 Prepare a region-wide, long term strategy for
accessible taxi supply (see broader discussion of a regional
taxi model in Recommendation B17 below)

Long Term

Issue: Downtown Entertainment District (Recommendation B7 to B10)
Late-night, weekend taxi service in the Granville Entertainment District (GED) plays a
key role in helping Police to clear out intoxicated bar patrons. This is especially true at
bar closing when demand surges higher than supply, and the potential for drunk driving
and incivilities in the area increase.
Many bar patrons are seeking a suburban destination. While Vancouver-based taxis are
authorised to pick up fares in Vancouver, suburban taxis may not (i.e. they may only
drop off in Vancouver). As a result the opportunity for suburban-bound taxis to take
suburban-bound passengers is thwarted.
Several issues require further consideration. In October 2012 the PTB approved an
application for 38 part-time suburban taxi licenses to operate Downtown on the
weekend. The PTB noted issues associated with peak period taxi supply in this area
include: longer waiting times, taxi unavailability, and trip refusals, especially for trips
to the suburbs. The PTB report considered studies, Administrative Reports from the
City, information from municipalities, data provided by applicants and other
supporting documentation. The PTB concluded that the evidence supported additional
taxi service.
This subject was discussed as part of the Vehicle For Hire Dialogues and, after much
deliberation, on September 3rd, 2015 it was concluded that all parties would agree to
disagree in order for the Dialogue process to continue. Having considered the Dialogue
discussions and the evidence, staff make the following recommendations:
Staff Recommendations

Timing

B7 Lift the temporary moratorium on new taxi licences.

Immediate

B8 Issue permanent licences to the local taxi companies
for 99 peak-period, part-time licences (currently issued on
a temporary basis).

Immediate

B9 Issue permanent licences to the 38 suburban taxis to
pick up in Vancouver’s Downtown Entertainment Area
during weekend peak times, subject to regulations (e.g.
fees, operating requirements).

Immediate

Short Term

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Staff Recommendations

Timing

B10 Examine opportunities to establish destinationthemed taxi stand “hubs” (e.g. Surrey-bound taxis in one
stand, North Shore-bound taxis in another) to better
connect passengers with drivers motivated to carry them.
Issue: Enforcement (Recommendations B11 and B12)
There is a high rate of unauthorised taxi pickups in Vancouver. According to one
estimate between 9 and 16 percent of taxis operating on weekend evenings Downtown
are unlicensed suburban taxis 9. Current enforcement tactics appear insufficient to
deter this practice. In September 2015, the VTA launched a lawsuit against the
suburban taxi companies, alleging unauthorized taxi pick-up practices.
Currently, the enforcement tool readily available to the City is spot checks leading to
ticketing and fines against violators (either under the Vehicles For Hire Bylaw or the
Passenger Transportation Act); however, in the future, data tracking systems will give
rise to more sophisticated and less labour intensive monitoring approaches (see
Recommendation B13).
Council should approve steps to improve enforcement against taxis operating illegally
in the City of Vancouver.

Staff Recommendations

Timing

B11 Increase enforcement levels by:
1) requesting staff to work with Vancouver Police Department
(VPD) to conduct additional on-road spot checks (and issue
fines to violators); and,
2) investigating options for using data monitoring as an
enforcement tool, particularly to address unauthorized pick-ups
(see discussion in next section, below, Recommendation B13)

Short Term

B12 Increase the fines from $250 to $500 for taxis operating without a
licence (S. 7(1) of the Vehicles for Hire Bylaw) or in violation of their
locational or temporal conditions.

Immediate

Opportunity: Advanced Data Monitoring (Recommendation B13)
The advent of highly sophisticated geolocational data tracking capabilities has enabled
the potential for regulators to monitor specific movements and activities of taxis. This
9

Ibid.

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means that previously-unknowable information can be obtained, measured and
analysed, including:
•
•
•
•

the number and location of taxis operating
number of trips, including pickup and drop-off locations
trip distance and duration
taxi response times

•
•

taxi route for each trip
taxi industry revenue

Staff recently visited the City of Calgary to inspect their taxi data tracking system.
Calgary is able to use their system to provide valuable insight into taxi policy issues
such as:
i.
ii.
iii.
iv.
v.
vi.

whether additional taxi supply is warranted (including when and where demand
is greatest)
where to place taxi stands
incident investigations (e.g. assaults, indirect route complaints)
bylaw violations (e.g. operating at a disallowed time or location)
industry system issues such as malfunctions or inefficiencies
future demand patterns

Such a measure in Vancouver would require significant cooperation among local
regulators (Vancouver, PTB and other Metro jurisdictions) and the taxi industry (33
companies operating regionally).
By comparison, large metropolitan cities such as Chicago and New York receive this
level of information. It allows these regulators to make informed decisions and ensure
compliance with regulations. It is important to note that monitoring and enforcement
through data is promoted as best practice by the International Association of Taxi
Regulators (IATR) and referenced in report by Dan Hara.
Staff Recommendation
B13 Investigate and liaise with the taxi industry, PTB,
Ministry of Transportation & Infrastructure and other
regulators in the region, and report back with a plan to
implement a taxi data monitoring system, including
necessary bylaw amendments and estimated budget.

Timing
Short Term

Opportunity: Environmental Performance (Recommendation B14 to B16)
Alongside walking, biking, transit, and car sharing (e.g. Car2Go, Modo), taxis provide
essential support to Vancouverites who want to drive less, or live car-free. The City’s
sustainability goals emphasise the importance of convenient, comfortable and safe
taxi service. For example a Greenest City Action Plan Key Strategy is to “Advance

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policies that encourage residents to reduce car ownership and use”. Taxi policy can
support this Strategy to increase the efficiency of taxis by enabling taxi sharing and
supporting better integration of transit and taxis.
The regulation of individual taxi vehicles can also improve their environmental
performance. For example, an existing PTB requirement ensures that taxis meet a
minimum fuel efficiency level:

Regular Taxi
SUV and Full Size
Vans/Minivans

Fuel Efficiency Requirement 10
(litres per 100 km)
6.9
8.0
10.1

Although the PTB does not require limousines to meet an eco-friendly standard, they
have created a guideline for limousines (i.e. an “eco-friendly limousine” definition 11).
The availability of this guideline provides an opportunity for local governments to
encourage or require improved performance by limos in the future.

Staff Recommendations

Timing

B14 Examine options for phasing in requirements for
limousines to meet a minimum environmental performance
standard for fuel efficiency.

Long Term

B15 Examine options to enable taxi sharing for certain
trips (as per Action M 6.1.4 in the Transportation 2040
Plan).

Short Term

B16 Examine how taxi policy can support the integration
of the Compass Card system with taxis (as per Action T
6.2.4 in the Transportation 2040 Plan).

Long Term

Opportunity: Regional-level Taxi Planning (Recommendations B17 and B18)
The current system of taxi licencing follows a controlled-access model under which the
PTB and the City limit the total supply of available taxi licences. The PTB approves
applications for additional licences only when a taxi company makes application and
presents sufficient evidence to support additional supply. There is merit to moving
from an application-driven model to one in which cities also play a part in assessing
and determining taxi supply. This would enable local governments to respond more
quickly to shifts in demand, and would enable coordinated taxi service planning at a
10

Fuel efficiency must meet or beat this standard.
Generally speaking, an “eco-friendly” limo is differentiated from a conventional limo with respect to
engine type (e.g. gasoline-electric hybrid or a bio-diesel).
11

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regional level. Data monitoring capabilities (recommended above in B13) would
enable a robust approach to planning taxi supply, including addressing sub-area
deficits and placing taxi stands.
A shift of this scale in the approvals process would require significant cooperation
among local and provincial regulators, as well as legislative amendments by the
provincial government. Upon receiving direction from Council, staff would continue
discussions with our provincial counterparts, as well as our Vehicle For Hire Dialogue
partners, to move this idea forward.
Staff Recommendations

Timing

B17 In liaison with the VFH industry, key users, other
Metro Vancouver municipalities and the PTB, examine
options for developing a regional context for informing
planning, integration and regulation of the sector,
including licensing implications.

Long Term

B18 Work with participants in the VFH dialogue to develop
a funding platform to enable them to continue the work of
the process that is underway and come back to Council
with a full scope, timing and funding partners.

Short Term

Opportunity: Ridesharing (Recommendation B19)
Rideshare companies are a relatively-recent addition to the taxi industry. Uber, based
in San Francisco, is perhaps the best-known rideshare company. Their most prevalent
service offered is called UberX (hereafter “Uber”). As Uber is the largest ridesharing
company in the world, it is profiled in this section of the report.
Uber uses a smartphone application (i.e. a smartphone app) to connect riders with
available drivers to provide taxi services using their personal vehicles. The key
differences between the Uber and conventional taxis are:

Supply
Fares
Safety Standards

Liability

Uber’s Ridesharing Model

Regulated Taxi Model

Unregulated number of
vehicles
Unregulated minimum or
maximum fares, including
surge pricing
Self-conducted vehicle and
driver safety checks

Capped

In-house training
Drivers’ personal insurance
coverage coupled with a
blanket liability policy

Conducted by Justice Institute
Commercial vehicle insurance
from ICBC

Consistent fares 24/7
Conducted by objective third
party

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Licencing

Uber’s Ridesharing Model

Regulated Taxi Model

Class 5 Driver’s Licence (noncommercial use)

Class 1, 2 or 4 (commercial use)

Note: ridesharing companies operate in a variety of jurisdictions and under a variety of regulatory approaches
ranging from unregulated to somewhat regulated. This table described how they operate when unregulated.

The rideshare model poses both opportunities and concerns for regulators. On one
hand rideshare companies represent a leap forward in taxi supply and service. The
public has responded positively to enhancements such as app-based requests, cashless
payment and online driver reviews (the taxi industry has recently introduced similar
functionality). It is worth noting that of 55 calls to the City about taxi issues over the
past 4 years, most (31 percent, or 17 calls) were in favour of ridesharing, while two
calls were opposed. In markets that Uber is operational, there is evidence that the
significant increase in supply has resulted in shorter wait times, lower fares, and
higher customer satisfaction.
On the other hand, rideshare raises significant concerns about passenger safety, future
taxi industry viability 12, and the availability of accessible service to disabled persons.
Numerous jurisdictions around the world are regulating (or working to regulate) the
ridesharing industry. According to Uber, they are regulated in over 60 cities in the US,
The Philippines and Mexico City. The emerging body of regulations address driver
record checks, vehicles inspections, insurance, accessible service, security cameras,
pricing models, street hails and data sharing. Among those leading the way are New
York, Chicago, Portland and Seattle, and in Canada, Edmonton and Toronto are actively
considering regulations.
To date no rideshare company has sought (or received) PTB approval to operate in BC;
however, should this change in the future, the City will need to determine whether to
regulate them, and if so, how to ensure the public interest continues to be served. Any
change to City policies for ridesharing should consider whether similar changes to the
regulations are warranted for taxis as well.
It is worth noting that ridesharing increases opportunities for significant advances in
transportation such as:
a) universal app-based service in which the customer may choose from the
nearest available vehicle regardless of whether it is offered by a rideshare or
taxi provider;
b) rideshare carpooling 13; and,

12

“Transportation Networking Companies and the Ridesourcing Industry” found several studies that
estimate the impact of ridesharing in a location reduces total taxi market share by 10 and 40 percent.
13
Technology makes it easy to calculate the previously-difficult apportioning of taxi costs among two
or more passengers in the same vehicle. For example, Uber offers two products uberCOMMUTE (in pilot
stage in China) and UberPOOL.

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c) “driverless” technology. (To be fair both the ridesharing and taxi industries are
signalling their intentions to align their business models to this emerging
technology.)
Staff Recommendation
B19 In liaison with other local governments in the region,
the PTB, ICBC, the taxi and ridesharing industries as well
as key user stakeholder groups (e.g. disabled community,
seniors, the Port and tourism), examine the issues and
opportunities for rideshare in Metro Vancouver, and report
back to Council with findings.

Timing
Short Term

Opportunity: Housekeeping Updates (Recommendations B20 and B21)
Through the course of this policy review, staff encountered several issues in need of
minor issues requiring housekeeping updates, discussed below:
a) The City charges a $23 service charge for a replacement plate. The rate has not
changed for the past few years; however, the City’s costs have increased and
surpassed the fee (to a total of $34 per plate). Staff are recommending a fee
increase to recover these costs; it will only affect licensees who require
replacement plates.
b) The City allows Business Licence fees to be paid on a pro-rated basis (e.g. an
applicant in December pays a fee that is one-twelfth of the annual fee for that
year). Currently, taxi licence fees are not given this same treatment (i.e. an
applicant in December pays the entire annual fee for a licence even though it
expires within a month). Staff are recommending that pro-rated taxi licence fees
be allowed.

Staff Recommendations

Timing

B20 Increase the fee for a replacement plate to $34.

Immediate

B21 Enable taxi licence fees to be paid on a pro-rated
basis.

Immediate

Financial
Most recommendations contained in this report are cost-neutral to the City; however,
if Council eventually choses to implement a data monitoring system (B13) or a
regional taxi service planning model (B17), these measures would require additional

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and significant investment. Staff will report back with cost estimates as part of this
work.
The additional enforcement measures (B11) are projected to be self-financing (i.e.
the fine revenues will cover the cost of enforcement staff).
It should be noted that certain measures are expected to have a cost impact on the
taxi industry (i.e. the requirement for refresher training, first aid training, and
liability insurance). The costs of these measures are reasonable compared to the
improvements to service and public protection.
CONCLUSION
The Vehicle for Hire industry and, more specifically the regulation of this industry for
the benefit of the public, has undergone almost constant change and reinvention
during its long history. The provision of ground transportation services is once again on
the verge of transformation as technological advances, service expectations and
environmental prerogatives evolve. Vancouver is on the cusp of this change. This
report brings forward 21 measures to harness the benefits of change, while ensuring
that traditionally-underserved citizens – the disabled, the young, the off-peak
passenger- continue to have access to essential transportation services.
*****

 APPENDIX A
PAGE 1 OF 2
APPENDIX A: VEHICLE FOR HIRE DIALOGUE INVITEES
Name
Sarb Nagra
Mano Virk
Mohan Kang
Robbie Dhillon
Saif Ullah
Amandeep Garcha
Kara Loy
Alison Chow
Heather McCain
Andreea Toma
Paul Storer
Thor Kuhlmann
Sarah Hicks
Pam Hayes
Praneeta Simadri
Lorraine Logan
Charles Duncan
Maheshinder Sidhu
Jane Dyson
Charles Gautier
Patti Gleeson
Craig Jangula
Harry Randhawa
Peter Stamm
Rahim Lalani
Gurpal Nagra
Jas Sidhu
Timothy Weigelt
Deborah Littman
Sarj Sanghera
Gurdip Sahota
Michael McCubbin
Bill McLachlan
Melanie Vipond
Taylor Clarke
Peter Gall
Michael McGee
Jan Broocke
Kristin Vanderkuip
Cathy Browne
Laura Mackenrot
Whitney Gordon
Carmen Ortega
Ella Huang

Affiliation
BC Limousine Association
BC Limousine Association
BC Taxi Association
Black Top Cab
Black Top Cab
Black Top Cab
CERES
CERES
Citizens for Accessible Neighbourhoods
City of Vancouver
City of Vancouver
City of Vancouver
City of Vancouver
City of Vancouver
City of Vancouver
COSCO
Delta Sunshine and Tsawwassen Taxi
Delta Surrey Green Cabs / Delat Sunshine Taxi
Disability Alliance BC
Downtown Vancouver Business Improvement Association
Guildford Cab
Jangula & Company / Gvt Relations for VTA
Justice Institute of BC
Kimber Cabs
Legacy Limosine
MacLure’s Taxi
MacLure's Taxi
Member, Users Advisory Committee, TransLink
Metro Vancouver Alliance
Newton Whalley Taxi
North Shore Taxi
on behalf of Ripe Rides
on behalf of the Suburban Taxi Companies
on behalf of the Vancouver Taxi Association
on behalf of the Vancouver Taxi Association
on behalf of the Vancouver Taxi Association
Passenger Transportation Board
Passenger Transportation Board
Passenger Transportation Branch
Persons with Disabilities Advisory Committee
Persons with Disabilities Advisory Committee
Port Metro Vancouver
Port Metro Vancouver
Richmond Centre for Disability

 APPENDIX A
PAGE 2 OF 2
Ottis Perrick
Ricky Goraya
Byron Hyhenrauch
Dellie Lidyard
Paul Gill
Moonyem Mohammad
Jana Remisova
Merrilee Ashworth
Vincent Gonslves
Michael van Hemmen
Chris Schafer
Rob McKay-Dunn
James Raymond
Vance Campbell
Kevin Barker
Mike Gilbert
Balbir Rana
Harry Judge
Carolyn Bauer
Dave Chami
Scott Ricker
Kulwant Sahota
Satnam Jaswal
Sat Gill
Nathalie Roemer

Ripe Rides
Ripe Rides
Ripe Rides
Seniors Advisory Committee, Transportation
Sunshine Cabs
Surrey Metro Taxi
Tourism Vancouver
Translink
Translink
Uber
Uber
Vancouver Board of Trade
Vancouver Economic Commission
Vancouver Liquor Primary Association
Vancouver Police Department Taxi Detail
Vancouver Police Department Taxi Detail
Vancouver Taxi
Vancouver Taxi
Vancouver Taxi Association
Vancouver Taxi Association
Vice Chair, Seniors Advisory Committee, City of Vancouver
Yellow Cab
Yellow Cab
YVR
YVR