ADMINISTRATIVE REPORT

Date: January 28, 2000
Author/Local: I. Adam
RTS No. 01247

CC File No. 5752-2

Council: February 1, 2000

TO:	Vancouver City Council
FROM:	General Manager of Engineering Services
SUBJECT:	Stanley Park Causeway

RECOMMENDATION

A. THAT City Council approve the reconstruction of the “S” curve entrance to Stanley Park, based on the design and cost-sharing outlined in this report, subject to all the participating agencies (Transportation Financing Authority, ICBC, Translink and Park Board) approving the proposed design and cost-sharing arrangements for the “S” Curve and causeway;

B. THAT City Council authorize the City Manager, in consultation with the General Managers of Engineering Services and Parks and Recreation, and the Director of Legal Services to finalize a legal agreement with the participating agencies, to achieve the short term design changes and cost-sharing outlined in Appendix C;

C. THAT City Council approve a budget of $2,000,000 for its share of the cost, $450,000 to be provided from Streets Capital Account 30000021 - Georgia Street Improvements and $1,550,000 in advance of the 2000 Streets Capital Budget;

D. THAT City Council authorize the General Manager of Engineering Services to enter into a public consultation process around the design elements, including the treatment of the Gilford connection to Georgia Street and the potential median and bus lane on Georgia Street, for report back; and

E. THAT Council endorse and commit to enter into a public consultation process with the Board of Parks and Recreation, TransLink, ICBC, BCTFA and all other concerned stakeholders, to consider options leading to the elimination of private vehicles from the Stanley Park Causeway, including the cost sharing of assessment studies and the public consultation as noted in Appendix C.

GENERAL MANAGER’S COMMENTS

With the clear decision to retain three lanes on the bridge and causeway, issues of design and safety have come to the forefront. The design that has been developed improves safety, meets a number of outstanding city needs, and results in substantial improvements to Stanley Park itself. Accordingly, I recommend that it proceed to implementation.

CITY MANAGER’S COMMENTS

The arrangements for changes to the causeway and Stanley Park entrance are positive, and therefore, the City Manager RECOMMENDS approval of A, B, C, D and E.

In addition, the City Manager supports many items noted in Appendix C for inclusion in future legal agreements. However, it is important to note that there are significant issues to resolve before the long term objective of an alternative to private vehicular use of the causeway and bridge can be achieved. Elimination of private vehicles from the Stanley Park Causeway could not occur until a viable alternative, acceptable to public authorities, including City Council and communities which rely on this important transportation link, is in place. As well, there are provisions in Appendix C which obligates the City to future cost sharing which cannot be determined at this time. However, a commitment to participating in a public consultation process to facilitate the long term objective outlined in Appendix C is supported.

POLICY

Council has maintained an active role in the planning of the Lions Gate Bridge Project with support for a three lane option May 26, 1998.

PURPOSE

This report describes a proposed agreement between the City of Vancouver, BC Transportation Financing Authority (TFA), ICBC, Vancouver Board of Parks and Recreation and Translink, to reconstruct the S-curve at the entrance to Stanley Park, undertake limited widening of the Stanley Park Causeway to match lane widths on the refurbished Lions GateBridge, relocate the Chilco Bus loop into Stanley Park, and provide trolley services into the Park.

BACKGROUND

The City has reviewed the Lions Gate Crossing issue several times in the nineties in response to a Provincial initiative to correct the structural deficiencies on the Bridge. A number of potential reconfigurations of the bridge and causeway were evaluated. In the end, the City stated a preference to retain the existing Bridge and the 3-lane configuration of the causeway.

The current project to rehabilitate the three lanes on the bridge and causeway, including improvements for pedestrians and cyclists, was announced by the province on May 22, 1998.
STATUS OF CONSTRUCTION

Bridge and causeway construction is proceeding as scheduled, although work has slowed somewhat due to inclement weather. For the causeway, the east side curbs, sidewalks and associated utility work are complete. Work on the west side has included environment measures, underground utility installation, and pole bases. For the Bridge, fabrication of deck replacement sections for the main span is proceeding.

DISCUSSION

With the clear decision to retain three lanes in this corridor, issues of design and safety require resolution.

(a) SAFETY

In a report last November, it was pointed out that the Lions Gate Corridor has high accident rates. These rates could be decreased by a comprehensive safety package, including widening the lanes. This report is on file in the General Manager’s Office.

The Provincial Government has contracted to rehabilitate the bridge and causeway, which includes widened lanes on the bridge itself, and improvements to the pedestrian and cyclist facilities throughout. The remainder of the corridor is within Stanley Park and includes the three lanes plus pedestrian and cyclist facilities through Stanley Park, and the ‘S-curve’ at Lost Lagoon.

To properly address safety issues, the design of the causeway should deal with anumber of aspects, including:
- the width of the lanes through the park
- the pedestrian and cyclist facilities
- design of the S-curve
- the roadway surface
- speed monitoring
- lighting
- drainage and runoff

It should also deal with these safety issues in a way that benefits the Park.

(b) OTHER DESIGN ISSUES

In on-going discussions over the treatment of the causeway, a number of City interests have been identified. These include:

- providing priority treatment to transit crossing Burrard Inlet, along with upgraded pedestrian and cyclist facilities;

- improved transit access into Stanley Park, preferably with trolley buses;

- separating Stanley Park traffic from bridge traffic, so as to reduce the effect of bridge congestion on park users;

- improving pedestrian, bicycle and in-line skating flows in and around the causeway, particularly through the very confining tunnel at Chilco Street;

- in the short-term, reducing traffic impacts on the Park, particularly noise;

- in the longer term, seeking an alternative Inlet crossing to remove traffic from the Park;

- minimizing impacts on the West End.

PROPOSED DESIGN

In conjunction with the Provincial Transportation Financing Authority (TFA), ICBC, and Translink, Park Board and City staff have developed a design that meets all of the noted objectives. This plan is illustrated in Appendices A and B, and includes thefollowing major elements:

- widening the lanes through the Park to 3.5 metres, to match the bridge. Because the east curb is already in place, the widening would be to the west. The overpass at Prospect Point would require reconstruction to accommodate this;

- raising the underpass at the north side of Lost Lagoon, to accommodate trolley wires;

- providing the opportunity for year-round trolley-bus service into the park;

- the inclusion of speed-monitoring equipment along the causeway;

- termination of use of the Chilco Loop, with this space returned to Park use (washrooms will continue to be available in this area);

- separation of the Park traffic from bridge traffic, beginning at a point between Gilford and Chilco streets, and extending through the S-curve. (Some bridge commuters use the Stanley Park lane to bypass queues, then cut into the bridge lanes at the last opportunity on the S-curve, resulting in increased congestion. This separation would address that concern);

- transit vehicles and bicycles would use the newly-separated Stanley Park lane to bypass queues. Trolley buses would then proceed into the park, while North Shore buses would access the bridge lanes via a cutoff at the north end of the S-curve. Bicycles would access the widened sidewalk at this same point;

- easing of the southerly S-curve to a 50 km/h design. A higher design speed was ruled out, in order to provide a transition into the lower-speed City environment;

- improving the pedestrian connections at Chilco Street. The existing tunnel has limited headroom for cyclists, poor lighting and narrow approaches. The tunnel would be raised, headroom increased, lighting improved, and the approaches substantially regraded and widened, resulting in a much improved connection;

- Chilco Street would be closed between Alberni and Georgia. This connection would no longer be used by buses; to meet all the grade changes outlined above, and to provide more space to widen up the entrance to the pedestrian underpass, it would be closed and landscaped;

- in order to transition from the existing bus lane into the revised S-curve, and to match cross-section and grades properly, the joint project would extend to Gilford Street. Any modification beyond that point would be a City/Translink project;

- optional treed median on Georgia Street and eastbound bus lane; optional closure of Gilford at Georgia. These two aspects are within the City’s jurisdiction.

It is proposed to have a public process to discuss these options, for report back to Council.

FURTHER PUBLIC PROCESS

There has been extensive public process over a number of years, leading to the decision to rehabilitate the bridge and causeway in a 3-lane configuration.

Nonetheless, there are aspects of the design that require further consultation at this time. These include:

- future cross-section of Georgia Street. The existing cross-section could be retained, or it could be altered to include a treed median and eastbound bus lane. (A setback line was provided for this purpose on the south side of Georgia Street in 1989). This option would extend to at least Denman Street. In either case, the approved urban design treatment of Georgia Street would be provided, with a double row of trees and enhanced sidewalks;

- treatment of Gilford Street, Alberni to Georgia. This section of street could be closed (similar to Chilco), or it could be modified to ensure it serves only local users.

- design treatment of other local streets north of Robson and west of Denman, to reinforce their role as local streets.

The results of this public process will be reported back to Council in the spring.

In the longer term, the presence of bridge traffic in Stanley Park creates a fundamental conflict. First Narrows is clearly the shortest and least expensive route across the Inlet. However, the traffic route introduces noise and intrusion, occupies parkland, and divides the remaining parkland in two.

As the extended review of Lions Gate Bridge indicated, there are potential options to the current arrangement. When the current bridge rehabilitation reaches the end of its lifetime,

JURISDICTION AND COST-SHARING

The additional modifications to the causeway north of Lost Lagoon are estimated to cost $5 Million. This portion would be funded and constructed by the Provincial Transportation Financing Authority (TFA).

The reconstruction of the S-curve, and Georgia Street to Gilford, extension of trolley buses into the Park, and expansion of pedestrian facilities at Chilco Street, are estimated to cost up to $10 million. This would be shared 50:50 between the Province (including ICBC) and local authorities (City and Translink). Translink would pay for trolley overhead and similar improvements; the City’s share, 50% of the remainder, would not be expected to exceed $2 million.

$1.6 million was set aside for this purpose, as part of the 1993 Capital Budget. There have been reallocations for other purposes, leaving a residual of $450,000. To repay these reallocations and meet the increased cost ($400,000) would require a total allocation from the 2000 Capital Budget of $1.55 Million.

CONCLUSION

In addition to the basic matters of safety, there are numerous other City and Park issues related to the Stanley Park Causeway. Through collaborative efforts of the TFA, ICBC, Translink, and Parks and City staff, a design has been prepared that meets all these needs, including measures to improve Stanley Park.

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COPIES OF APPENDICES A, B, AND C ON FILE IN CITY CLERK’S OFFICE

(c) 1998 City of Vancouver