CITY OF VANCOUVER

ADMINISTRATIVE REPORT

 

Date:

February 25, 2005

 

Author:

B Maitland/
W Pledger

 

Phone No.:

7420/7346

 

RTS No.:

4748

 

CC File No.:

5559

 

Meeting Date:

March 15, 2005

TO:

Vancouver City Council

FROM:

Directors of Real Estate Services and Facilities Design Management in consultation with the General Manager of Engineering Services, the Director of Current Planning, and the Manager of the Vancouver Rapid Transit Office

SUBJECT:

Integration of the Broadway RAV Station with the Future Civic Precinct Redevelopment

RECOMMENDATION

The City Manager RECOMMENDS approval of A through F, but puts forward for CONSIDERATION G, H and I in lieu of A through D with respect to the 2530 Cambie Street Heritage Building, should Council determine that the benefits of retaining the heritage building outweigh the negative impacts on the other public/civic interests generated by its retention.

COUNCIL POLICY

Demolition of City buildings requires Council approval.

Right-of-way agreements and licenses require Council approval.

The addition or deletion of properties on the Vancouver Heritage Register require Council approval.

The Cambie Street (East side) C3-A Guidelines call for a 7.6m setback to create a generous pedestrian circulation area that would also accommodate trees, street furniture and weather protection.

Council's advice on the RAV Project (2003) included pursuing opportunities to integrate stations into adjacent developments and that the system should be fully accessible to persons using wheelchairs and other mobility devices, persons with sight and hearing disabilities, and passengers with small children.

SUMMARY AND PURPOSE

This report discusses the integration of the entrance to the Broadway RAV station with the adjacent City-owned property on the east side of Cambie between Broadway and 10th Avenue. The report identifies and reviews five relevant criteria including bus connections with the station, pedestrian access and safety, public realm commitments, redevelopment of the civic precinct and heritage conservation. The report concludes that various options exist to integrate the existing heritage building into the site but that all options compromise some or all of the above criteria. Weighing the various options against the criteria, staff recommends, as the preferred option, one which facilitates pedestrian access between Broadway buses and RAV which, unfortunately requires the demolition of the four retail units along Broadway immediately east of Cambie and the "B" listed Heritage apartment at 2530 Cambie.

Therefore, while staff recommends the retail units along Broadway and the heritage building on Cambie be demolished, a recommendation to preserve the heritage building in-situ has been provided for Council's consideration, should Council wish to give heritage conservation precedence over the other public interests.

BACKGROUND

Over the past 15 years various studies have been undertaken to assess the City's long-term space requirements, to address the seismic vulnerability of the City Hall Precinct facilities and to deal with the shortage of space for civic staff. Staff are currently spread out in various locations including the VanCity building and offices along Broadway, as well as rented space in City Square. To anticipate these future needs, the City has over the years acquired all property bounded by Yukon to Cambie, Broadway to 12th Avenue.

In 1997, the City obtained Expressions of Interest from developers to partner with the City in the development of a consolidated City Hall Precinct site. There was significant interest from seven (7) developers, however, it was decided to postpone further development of such options until there was a better understanding of the RAV project which was at the early planning stage at that time.

In May, 2003, Council re-iterated its support for the RAV line, and recommended that opportunities to integrate stations into adjacent developments should be pursued. In December, 2004, TransLink approved SNC Lavalin/Serco as the preferred proponent for the RAV line, and authorized RAVCo to enter into commercial negotiations with the proponent.

SNC's current design for the Broadway station has the tracks and platform located under Cambie Street between Broadway and 10th Avenue. The entrance to the Station has been tentatively located in a portion of the existing 10th Avenue parking lot to avoid disruption to four commercial units on Broadway and 2530 Cambie, a B-listed residential heritage property (see Appendix A).

DISCUSSION

Staff have identified five criteria which need to be considered in determining how best to integrate the RAV entrance to the Broadway Station with the adjacent City owned property east of Cambie and bus services on Broadway and on Cambie. Each is discussed below.

Criteria 1 and 2 focus on the safety and comfort of passengers and other pedestrians by ensuring that pedestrian/passengers can make a convenient and safe connection between buses and RAV.

Staff has analysed the Broadway-Cambie intersection including bus stop and pedestrian requirements. The Broadway and Cambie intersection will become a major transit crossroads between RAV, the existing local Cambie trolley bus and the existing east-west bus services along Broadway. This importance will grow with the future extension of the Millennium Line. In 2010, 2700 people per hour will be using this station; by 2021, this grows to 3300 people per hour. Over 75% of these RAV passengers will be transferring between buses along Broadway. It is critical for the safety and comfort of passengers and other pedestrians that adequate sidewalk space be provided at, and leading to the station entrance. It is equally important the entrance be as close as possible to Broadway to provide easy access to Broadway buses.

The proposed station entrance is just north of 10th Avenue in the existing parking lot and is well located to retain the heritage building. However, it is in a poor location as it relates to connections to Broadway and future underground connections to station entrances on the west side of Cambie. The sidewalk along Cambie is only 2.5 metre wide. This is inadequate for the expected volumes of pedestrians and cannot be widened in front of the heritage apartment building at 2530 Cambie. As well, the steep grade between Broadway and 10th Avenue will present significant challenges to the disabled, elderly and those with strollers. Therefore, staff recommends the station entrance be relocated to the corner at Broadway with a generous setback for surge volumes of pedestrians. Staff is also examining the potential for additional station entrances at the other corners of the intersection, particularly on the north side of Broadway, to further alleviate the transfer demands. This will be the subject of a future report as it impacts the specific location of the underground portions of the Broadway Station under Cambie including platforms and ticket hall.

TransLink advises that a bus stop long enough for two buses will be required for the local northbound Cambie bus adjacent the station entrance (ie, south of Broadway). Sufficient sidewalk space should be provided for bus passengers and other pedestrians. Because these buses will need to stop for extended periods, it is important that a bus bay be provided so as to not block through traffic on Cambie. Sufficient sidewalk space and bus stop facilities can only be provided with the removal of the Heritage apartment building.

3. Public Realm Vision for Cambie Street

Criteria 3 facilitates the implementation of the Cambie Public Realm Plan.

The City's long term vision for Cambie Street includes a formal tree lined boulevard on the east side, with consistently set back mid-rise buildings which will clearly define the street's edge. This will enhance the visual and pedestrian quality of Cambie Street , will maintain good views to the downtown and north shore mountains, as well as views of City Hall from the downtown peninsula. This setback is being provided, for example, north of Broadway adjacent to the redeveloping properties between 8th and 6th Avenues. Further, it is expected the guidelines will be applied as the remaining blocks between 8th and 10th Avenue redevelop including the City property between Broadway and 10th.

Criteria 4 is to establish an expanded City Hall precinct efficiently designed to provide for better public access to improved City Hall services.

In 1998, staff developed a number of options for the redevelopment of the City precinct. These options contemplated the removal of all buildings north of the existing City Hall up to Broadway, including the East Wing and the Heritage apartment building. This study recognized that a direct connection to an east-west, and/or north-south rapid transit line would have a significant public benefit.

Over the last year, staff have been reviewing RAV station locations and meeting with adjoining property owners to discuss the potential integration of station entrances into private properties. Specifically, with respect to the City Hall precinct, the City's RAV Team has met with the Directors of Real Estate Services and Facilities Design and Management to discuss an underground connection between the Broadway Station and future development of the City-owned Broadway site. The City hired James Cheng Architects to review previous City Hall expansion options in the context of the RAV line and he has confirmed:

In order to ensure the entrance to the Broadway Station does not restrict the development options that might be considered by the City in the future or concurrently with the RAV project, it is recommended the City hire a consultant to undertake further planning work to conceptualize possible development options for the site. This would include a new/expanded City Hall, commercial, retail and residential uses, and to assess the potential impact of the Broadway Station on such options. Staff will report back to Council with the results of this study and the financial implications of incorporating related portions of such future development, if any, concurrent with the RAV project or at a future date as part of a future City development.

Criteria 5 is to preserve buildings of significant heritage merit.

The building at 2530 Cambie Street was built in 1926 and originally known as the Pontacambia Apartments. It is a two-storey plus basement apartment block and listed on the Vancovuer Heritage Register in the "B" category. A Statement of Significance for 2530 Cambie has recently been completed by Donald Luxton & Associates (Appendix B). Mr Luxton concluded the building has five areas of heritage value. This apartment building has value as a representation of the lifestyle of workers at the time of its construction and the modest development trends of similar apartment buildings along Cambie Street. It also has value for its architectural style and associations with Dr. Alexander Stewart Monro (1872-1932) who developed and owned the building and with its architects, Sharp, Thompson and Downing. Dr. Monro helped establish the Vancouver General Hospital and was one of its first directors.

Review of the Retention of Heritage Building

The Vancouver Heritage Commission, at its November 24, 2004 meeting (prior to Mr. Luxton's SOS), and after hearing from City and RAV staff, recommended:

In response to the Heritage Commission's request, staff commissioned the Statement of Significance to be prepared, did further analysis and generated several retention and non-retention options. Appendix C illustrates the range of options and evaluates them against the following transportation, public realm, development and heritage criteria identified in this report.

The most meaningful option for preserving the heritage values is the in-situ retention of the building, illustrated below and in Option 2A (Appendix C), depending where the station mezzanine is located. Staff concludes that retaining just the façade or moving the building elsewhere on the site would preserve only a very limited amount of the heritage value identified, while resulting in significant development costs and complications. At the same time, retaining the building in-situ presents significant negative impacts on the other public and civic objectives, and provides a limited degree of heritage value preservation.

Part of the heritage value identified in the SOS is this building being an example of the development pattern of similar apartment buildings for workers that developed along Cambie Street (and along Oak Street) serving local institutions such as VGH and the Model School. However, this particular building's connection with the apartment development patterns and its supporting urban context has incrementally been eroded over time. A number of years after the building was constructed, this portion of Cambie Street was widened to become a major ceremonial street connecting the new City Hall site and Queen Elizabeth Park with the rest of the city. The widening resulted in all new buildings having significantly greater street setbacks and being of a different scale. Pontacambia Apartments physically now sits somewhat in isolation in this portion of the street corridor with no street setback. This is an odd context for the Pontacambia Apartments which was designed and constructed adjacent to similar buildings versus a stand alone landmark structure. Because the building occupies a portion of the contemplated bus drop-off area, it precludes the opportunity to build back a supporting context for this heritage building. Furthermore, depending on where the ticket hall for the RAV station is located, the building will either need to be raised or tunnelled through, further altering the building's historic context.

While this retention approach has some merit in preserving part of this area's past legacy, the resulting benefits would be modest.

Retention of 2530 Cambie in Situ (with a mid-block mezzanine)

Conclusion

The implications of retaining the heritage building for the other civic/public interests are very significant:

When staff weighs this array of significant negative impacts against the modest heritage preservation results that could be achieved, staff conclude that the majority of civic interests are best met by demolishing the heritage building.

However, should Council determine that heritage retention should be given priority over the other public interest, staff have included a CONSIDERATION item which supports the retention of the heritage building in situ. In this case, staff would report back on funding options for the up to $1.3 million required for retention and the potential for cost recovery through the use or sale bonus heritage density.

AGREEMENT BETWEEN THE CITY AND RAVCO

To provide for an integrated solution that maximizes the redevelopment potential of the City lands, it is recommended that an agreement be entered into with RAVCo/TransLink to allow the station entrance to be built on City land, to the satisfaction of the Director of Legal Services and the General Manager of Engineering Services in consultation with the Director of Real Estate Services.

FINANCIAL IMPLICATIONS

It is recommended that staff work with RAVCo to negotiate a cost sharing arrangement for the demolition and restoration of the area in and around the proposed station. Costs are estimated to be $300,000 for the demolition of the four commercial units on Broadway and 2530 Cambie; $70,000 for the four commercial units only.

The four commercial units have various lease terms and demolition clauses. Final termination agreements with the tenants will be reported to Council for approval.

The cost of hiring a consultant to develop design concepts that will allow for the station to be integrated with a number of possible redevelopment options for the City lands is $50,000. Source of funds is the PEF.

SOCIAL IMPLICATIONS

It will be necessary to give notice to the tenants of the apartment building and the four commercial units. Tenants will be given a minimum of six months notice and the City will make available the services of the Tenant Assistance Coordinator for any residential tenant who requires assistance.

CONCLUSION

In order to ensure the optimum station design for pedestrians and transit passengers, public realm improvements, and the redevelopment potential for adjoining City property, staff are recommending the removal of the four commercial units and the heritage apartment block on the south east corner of Cambie and Broadway. Staff has also presented an option for Council consideration to retain the building in-situ. To provide for effective integration, it is also recommended that an agreement be entered into with RAVCo/TransLink to allow the station to be located on City land, and further that, a consultant be hired to develop design concepts for the City redevelopment which will inform the Broadway Station design.

- - - - -

CITY OF VANCOUVER STATEMENT OF SIGNIFICANCE

Prepared by Donald Luxton and Associates

February 25, 2005

PONTACAMBIA APARTMENTS

2530 Cambie Street

Description of Historic Place
The Pontacambia Apartments is a two-storey plus basement apartment block, identifiable for its Period Revival features such as the dentilled cornice at the roofline and elaborate door surround at the central front entrance. The interior and exterior fabric remain in substantially intact original condition. The building is located on a south sloping lot, near the busy commercial intersection of Cambie Street and Broadway.

Heritage Value of Historic Place
Built in 1926, this apartment building is valued as a representation of the lifestyle of working women at the time of its construction. All of the apartments are studio units, and the provision of a respectable but frugal environment for unmarried women would have protected their reputations, and allowed them to pursue a career until married. The building's location on the outskirts of downtown, near the Vancouver General Hospital and the Model and Normal Schools, suggest that many of the early residents would have been nurses and teachers.

Additionally, this apartment block is representative of the modest development trends along Cambie Street prior to the time that it was conceived as a grand north-south thoroughfare in the Bartholomew Plan of 1928-29. Since this building was constructed, Vancouver City Hall was located in Strathcona Park in the next block to the south, Cambie Street was connected to Southwest Marine Drive and the Cambie Boulevard was laid out. The adjacency of the front of the building to the street indicates how much Cambie Street has been widened.

The Pontacambia Apartments is a modest example of a Period Revival vernacular residential block, with Georgian Revival influences. The Period Revival styles were popular between the two World Wars, and expressed a sense of entrenched traditionalism; the American Sesquicentennial in 1926 provided further impetus to the popularity of the Colonial Revival styles. A relatively plain, symmetrical facade distinguishes this classically designed building, with its decorative focus on a centrally placed entrance. The original interior layout, including the central double-loaded corridors connected by an open staircase, remains intact.

The Pontacambia Apartments has heritage value for its association with Dr. Alexander Stewart Monro (1872-1932), who was active in promoting the establishment of the Vancouver General Hospital and served as its Director. Monro also served as chief surgeon to the Department of Veteran Affairs at Shaughnessy Hospital as well as at the Children's Hospital in Vancouver. Upon his death he bequeathed his estate to the University of British Columbia as an
endowment fund for medical research, which included this property as a part of its trust until 1972.

Furthermore, the value of the Pontacambia Apartments is associated with its architects, Sharp, Thompson and Downing. This was one of the few collaborations of George Lister Thorton Sharp (1880-1974), Charles Joseph Thompson (1878-1961) and Max B. Downing (1892-1976). Downing worked as an associated architect for Sharp and Thompson, which is remembered as the longest surviving architectural firm in the history of Vancouver. Other collaborations between the three architects included the Anglican Theological College at the University of British Columbia (1927).

Character-Defining Elements
Key elements that define the heritage character of the Pontacambia Apartments include its:
- mid-block location on Cambie Street, near Broadway, adjacent to an alley
- continuous operation as an apartment building
- form, scale and massing as expressed by its two-storey height (with raised basement) and regular, rectangular plan
- flat roof with straight raised parapets
- wood-frame construction and concrete foundation
- original facade materials such as rough-cast stucco with red brick quoining
- Period Revival features, displaying a Georgian Revival influence, such as: plain, unbroken symmetrical facade articulation with geometric proportions; cornice above front entrance with dentils, full-height pilasters flanking the entrance opening; and double multi-paned front door with original hardware
- exterior decorative elements such as the metal cornice at the roofline with dentils and circle motif; front steps leading up to the recessed entrance; and articulated window crowns
- regular and symmetrical fenestration, including 6-over-1 and 3-over-1 double-hung wooden sash windows, some in multiple assembly; and cross-muntin windows at the basement level
- interior elements, such as wooden millwork including an early use of plywood panelling, plain balusters and railings; kitchen and closet cabinetry with built-in vanities; central staircase with rooftop skylight; interior doors with original hardware; fir floors in hallway; oak floors in apartments; radiators; coved ceilings; plain picture mouldings; and arched doorway openings

Appendix C.

Heritage Retention Analysis

The following evaluation criteria were used for the heritage retention analysis. They are based on the transportation, public realm, development and heritage needs identified in the body of this report:

1.0 Current SNC Proposal (Mezzanine and Entrance at 10th Avenue)

The current design for the Broadway station has the tracks and platform located under Cambie Street between Broadway and 10th Avenue with the mezzanine located under 10th Avenue. The entry hall is located on the edge of the 10th Avenue parking lot. The current station design does not physically interfere with the existing Heritage building. The following illustrates how the needs of pedestrians, transit connections, and street requirements would be accommodated with the proposed station design, including a new pathway being added within the narrow gap behind the heritage building.

Current Proposal Route Passengers around building

Option 1. Retain Building and Route Passengers Along Cambie

Strengths

Weaknesses

Retains the building (and façade) in place

Costs for ramp, landscaping and loss to commercial development potential estimated to be *$400,000

Avoids hard costs of altering or moving structure

Narrow sidewalk compromises pedestrian safety and steepness is difficult for the elderly, disabled and those with strollers

Avoids relocation of residential tenants

Routing passengers around building is circuitous and isolates heritage structure

 

Narrow width behind building (2.3 metres) provides inadequate disabled ramp to station

 

The key heritage feature of the building, that is its intactness at this location, is disrupted

 

Residents would have noise and privacy impacts from pedestrians encircling building

 

Public realm setback for Cambie not achieved

 

Extended bus stop on Cambie cannot be accommodated

 

May present challenges for integration with future civic precinct redevelopment

 

Limits future commercial presence on the Cambie frontage

*all costed options include $70,000 for the demolition of the four commercial units along Broadway.

2.0 Options that Optimize the Current SNC Proposal

Two options were evaluated to maximize the benefit of the current station location. The first is a more direct route from the Broadway level to the 10th Avenue location through the basement floor of 2530 Cambie. The second is the same direct connection but with the removal of 2530 Cambie.

Option 2A Route Pedestrians through the Heritage
Retention Scenario Structure to Proposed Station Mezzanine Level

Option 2A - Route Passengers Through the Structure

Strengths

Weaknesses

Retains the building (and façade) in place

Renovation, including building code and seismic upgrades would cost approximately $380,000; may be offset from bonus heritage density

Passengers connecting to Broadway not forced to use narrow Cambie sidewalk

Impacts the intactness of the building at this location

 

Residents would have noise and privacy impacts from pedestrians traveling through the structure

 

To maintain ceiling height, the corridor would need to ramp down under the building then back up to the mezzanine level

 

Extended bus stop on Cambie cannot be accommodated

 

Public realm setback for Cambie not achieved

 

May present challenges for integration with future civic precinct redevelopment

 

Limits future commercial presence on the Cambie frontage

Option 2B Pedestrians Access Proposed Station
Removal Scenario at Mezzanine Level

Option 2B - Removal of Building

Strengths

Weaknesses

Creates more direct access to station from Broadway

Cost for the removal of buildings and restored landscaping estimated to be $300,000

Creates safe and comfortable environment for passengers and pedestrians

Results in loss of 2530 Cambie as a heritage resource

Achieves public realm setback for Cambie

Requires the relocation of the tenants of 2530 Cambie

Achieves extended bus stop on Cambie

 

Maximizes integration opportunities with the civic precinct redevelopment

 

Increases opportunity for commercial presence on Cambie

 

3.0 Options with a Preferred Station Location

Staff are working with RAVCo to assess the costs of moving the station mezzanine north, mid-block, for better connectivity to Broadway, on both the north and south sides of the street. This would also provide more flexibility in connecting with the future extension of the Millennium Line, whether that be along Broadway or 10th Avenue, as it would be equidistant from both. Staff have analysed both a retention and demolition option with this preferred mezzanine location.

Option 3A Route Passengers under the Heritage Structure
Retention Scenario

Option 3A - Route Passengers Under the Structure

Strengths

Weaknesses

Retains the building (and façade) in place

Renovation, including building code and seismic upgrades would cost approximately $1.3 million; may be offset from bonus heritage density

Passengers connecting to Broadway not forced to use narrow Cambie sidewalk

Impacts the intactness of the building at this location

 

Residents would have noise and privacy impacts from pedestrians traveling through the structure

 

Extended bus stop on Cambie cannot be accommodated

 

Passengers connecting to Cambie bus must use narrow Cambie sidewalk

 

Public realm setback for Cambie not achieved

 

Limits future commercial presence on the Cambie frontage

 

May present challenges for integration with future civic precinct redevelopment

Option 3B Direct Access to the Mid-block Mezzanine
Removal Scenario

Option 3B - Removal of the Building

Strengths

Weaknesses

Creates more direct access to station from Broadway

Cost for the removal of buildings and restored landscaping estimated to be $300,000

Creates safe and comfortable environment for passengers and pedestrians

Results in loss of 2530 Cambie as a heritage resource

Achieves public realm setback for Cambie

Requires the relocation of the tenants of 2530 Cambie

Achieves extended bus stop on Cambie

 

Maximizes integration opportunities with the civic precinct redevelopment

 

Increases opportunity for commercial presence on Cambie

 

4.0 Relocate the Facade Within the Future City Hall Redevelopment

This option would remove, store and relocate façade with the intention of incorporating it into a future City precinct redevelopment. Staff did not pursue the option of relocating the entire structure, owing to the results of the Statement of Significance which noted the building's limited heritage value, as well as the high cost of relocation (estimated to be approximately $1.9 million).

Strengths

Weaknesses

Retains the facade

Cost of storage and relocation estimated to be $1million; could be offset from bonus heritage density

Creates more direct access to station from Broadway

A key heritage feature of the building, that is its intactness at this location, is disrupted

Creates safe and comfortable environment for passengers and pedestrians

Requires the relocation of the tenants of 2530 Cambie

Achieves public realm setback for Cambie

 

Achieves extended bus stop on Cambie

 

Maximizes integration opportunities with the civic precinct redevelopment

 

Increases opportunity for commercial presence on Cambie

 

* * * * *


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