Agenda Index City of Vancouver

ADMINISTRATIVE REPORT

TO:

Standing Committee on Transportation and Traffic

FROM:

Manager of Rapid Transit in consultation with the General Manager of Engineering Services and the Director of City Plans

SUBJECT:

Rapid Transit Phase 1 - Rupert and Renfrew SkyTrain Station Designs and Precinct Public Enhancements Plans

 

RECOMMENDATION

B. THAT Council endorse the Rupert and Renfrew SkyTrain Station Precinct Public Enhancements Plans, Attachments 3 and 4, as a basis:

CITY MANAGER’S COMMENTS

The City Manager recommends approval of Recommendations A, B and C, noting that staff are continuing to work with RTPO and TransLink to refine the SkyTrain station designs and precinct public enhancements.

COUNCIL POLICY

Staff will work with the Province on planning for the Phase 1 SkyTrain route, alignment, station locations, and station area planning.

PURPOSE

The purpose of this report is:

· to provide Council with a summary of the Rupert and Renfrew Station Designs, including the Development Permit Board’s comments and advice and;
· to seek Council’s endorsement for the Rupert and Renfrew Station Precinct Public Enhancements Plans, so that staff can finalize negotiations regarding station area improvements.

SUMMARY

The design phase for the Rupert and Renfrew stations commenced in March 1999. Both the Special Commission for SkyTrain Review (in its May 1999 report) and Council emphasized the importance of:

· integrating the SkyTrain stations into the neighbourhood; and
· connecting with other transportation modes.

These objectives were reinforced during the design phase by the public, City staff, the Urban Design Panel and the Development Permit Board. The Rupert and Renfrew Station designs, considered by the Development Permit Board on August 9, 1999, generally reflect the discussions held with staff.

To achieve Council’s objectives, staff in the City’s Rapid Transit Office developed “Station Precinct Public Enhancements Plans” (“Precinct Plans”) around each station. These plans include improvements to adjoining sidewalks and street areas; major intersections and connecting streets; as well as to circulation and access. Most of the cost of these improvements will fall within the budget of the Phase 1 SkyTrain project and/or the Municipal Integration Fund jointly shared between TransLink and the RTPO.

This report recommends that Council receive for information the Rupert and Renfrew Station designs and endorse the related Precinct Plans. Staff will continue to work with RTPO to refine the station designs and to include the public enhancements contemplated in the Precinct Plans. In staff’s view, these enhancements are vital to SkyTrain’s success as a transit system and its successful integration into the surrounding neighbourhoods.

BACKGROUND

On June 24,1998 the Province announced the construction of Phase 1 of a SkyTrain system that was to be operational by 2001. As currently proposed, the Phase 1 SkyTrain route follows the Burlington Northern Railway corridor and Grandview Cut from Boundary Road to Commercial Drive, terminating at Vancouver Community College. Three Vancouver SkyTrain station locations have been identified: Rupert Street, Renfrew Street and Commercial Drive. This report deals with the design of the Rupert and Renfrew Stations and the areas around them.

On February 23, 1999 Council resolved that any endorsement by the City of the proposed phase 1 alignment or station locations be conditional upon the Province completing a comprehensive review of safety and security issues, addressing those in station and precinct designs; and responding to the concerns of the community and City staff in the design process. Council also directed staff to begin work with the Province’s Rapid Transit Project Office (RTPO) on station design and station precinct programming.

Since then, Staff have worked with RTPO in planning the SkyTrain alignment, station locations, station designs and precinct planning around the stations. Work on the Rupert and Renfrew stations and precincts included extensive public consultation, review by City staff, the Urban Design Panel and the Development Permit Board.

DISCUSSION

A. Rupert and Renfrew SkyTrain Stations Design Review

The Development Permit Board concluded their design review on August 9, 1999 and supported the submissions for the Rupert and Renfrew Station designs, noting the following should be done :

While this advice does not constitute formal conditions, RTPO and its architects are participating in this process in good faith. Where reasonably possible, the Development Permit Board comments and advice are being incorporated. In addition, the designs for the SkyTrain stations have gone through a public consultation process summarized in Attachment 5. The RTPO will be required to apply for building and related permits before commencing construction.

Since the Development Permit Board review, the RTPO has:

However, staff note the following concerns:

· the scope of the station design areas has been reduced including the reduction of the west plaza area of Renfrew station. RTPO has stated that these areas are outside the scope of station design and should be candidates for the Municipal Integration Fund.
· although space has been provided for the Greenway/Bikeway in the station designs, the designated pathways through the stations have been eliminated;
· the Renfrew station requires the realignment of a portion of 12th Avenue to provide adequate space for the station entrance, allow access to the development north of the station and maintain a continuous roadway through the area. This realignment requires the acquisition of the private property immediately to the north. By the time Council deals with this report, it is expected that a decision will have been made on whether the costs associated with the relocation of 12th Avenue is within the project budget or the Municipal Integration Fund (defined in the Financial Implications section of this report). This road realignment will be the subject of a separate Council Report from Engineering Services.

Given these concerns, staff have written RTPO to request they present the final plans to the public at an open house similar to earlier events. Staff recommend that Council receive for information the Rupert and Renfrew SkyTrain Station Designs, keepingin mind that staff will continue to work on refining them. Staff will also continue to negotiate with RTPO on the Central Valley Greenway/Bikeway and other components of the precinct plans.

B. SkyTrain Station Precinct Public Enhancements Plans

As discussed above, staff developed the Precinct Plans for both Renfrew and Rupert SkyTrain stations. The purpose of the Precinct Plans is to identify improvements that help integrate the stations into the neighbourhoods. The stakeholders include the RTPO, the City of Vancouver, TransLink and adjoining land owners. Attachments 3 and 4 illustrate specific public enhancements staff have identified as vital to integrate the Rupert and Renfrew Stations into the community and provide the desired transit connections. These enhancements are classified under five sub-areas and provide the basis for costs discussed in the Financial Implications section of this report:

The Precinct Plans are based on input received from the general public, nearby residents and business owners during various meetings held in 1999. In addition, the Plans also respond to conclusions of the Special Commission for SkyTrain Review in May 1999. Both emphasized the need for an integrated transit system that creates safe, efficient and convenient transfers to other transportation modes. They also emphasized the importance of integrating SkyTrain stations into surrounding neighbourhoods.

Supportive Uses near Rupert Station

The City supports the provision of commercial space under the guideway immediately west of the Renfrew station. Infill development north of the station on East 12th Avenue could be developed as consumer demand for local services increases.

Interim Rezoning Policies in Grandview/Boundary

On July 22, 1999 Council approved interim rezoning policies and guidelines for owner-initiated rezonings and conditional development applications in the Grandview/Boundary Industrial area to support high technology uses and station area development. These interim regulations and guidelines will be finalized as part of the Grandview/Boundary area planning process.

FINANCIAL IMPLICATIONS

The Precinct Plans include cost estimates for the improvements. Improvements within the property boundaries of the station site are not included as staff understand they are exclusively the responsibility of RTPO. Those that relate to redevelopment of adjoining sites are also not included in the cost estimates as they will be part of the owner-initiated rezonings.

Staff expect that most of the remaining improvements, except for traffic signal upgrades at Broadway and Grandview Highway, will be funded by the RTPO or by RTPO and TransLink out of a $60 million fund established by the Cost Sharing agreement in June 1999 called the “Municipal Integration Fund” (MIF). This fund was established as part of the “Negotiator’s Agreement on Cost Sharing and the Construction of SkyTrain Extensions” . TransLink and the Province contribute equally to the fund. The fund is to be used to pay for items related to the SkyTrain project which do not fall within the project scope including bus loops, station enhancements and park and ride facilities.

Staff believe that the improvements shown in the Precinct Plans are vital to SkyTrain’s success and should be funded by RTPO as part of the project budget or out of MIF.

Staff are hopeful designs for the stations are within the approved budgets which were established with only a preliminary level of design work. Otherwise, positive features of the stations may have to be removed to remain within budget. The exclusion of these items increases the pressure on the MIF to cover those costs. RTPO and TransLink are reviewing the submissions from the various municipalities to the MIF fund. A decision on the allocations of the fund is expected soon. Staff are trying to ensure that the elements of the designs as shown in the station plans and precinct enhancements are built either as part of the station design budgets or paid out of the MIF fund.

SOCIAL AND ENVIRONMENTAL IMPLICATIONS

The major concerns regarding station designs focus on the integration of the Rupert and Renfrew stations into the surrounding community and the efficient transfer between other transportation modes. The station designs and, in particular, the Precinct Plans respond to the needs associated with neighbourhood integration, sensitive environmental design and transportation connections.

CONCLUSION

The station designs generally respond to staff discussions with the RTPO and their representatives. A commendable effort has been made to provide a uniquely functional and aesthetic response to each of the two station designs. The Precinct Plans completed by City staff provide a basis for neighbourhood integration and necessary improvements connected with the stations’ development. Negotiations continue with RTPO and TransLink for them to pay for the majority of these improvements either out of the project budget or through the MIF.

Staff have recommended to the RTPO that they communicate to the public the final station designs. Staff also recommend that Council receive the Rupert and Renfrew SkyTrain Station Designs for information and endorse the Precinct Public Enhancements Plans. Staff will continue to work with the RTPO to refine the station designs and precinct planning, and report back by the Fall, 2001 on their implementation.

* * * * *

LINK TO ATTACHMENTS 1 AND 2

LINK TO ATTACHMENT 3

LINK TO ATTACHMENT 4

ATTACHMENT 5

Summary of the Public Consultation Process and Concerns

Planning and Urban Design Phase: September 1998 - February 1999

Since September 1998, RTPO has engaged in an extensive public process. The planning and urban design phase for the SkyTrain Phase 1 stations began the summer of 1998 and concluded in February of 1999. At that point, the technology, alignment and station locations had been determined. During that time, RTPO, in collaboration with the City, held the following public events:

1) a segment wide open house in September 1998;
2) an open house for Renfrew and Rupert stations in November 1998; and
3) two segment wide open houses in February 1999 to confirm the alignment and station locations.

In addition, the alignment and station locations were the subject of a public Council meeting on February 18, 1999 and Council recommendations on February 23, 1999.

Station Design Phase: March 1999 to date

The station design phase commenced in March of 1999. RTPO commissioned four architecture firms to consider the existing Nanaimo and Joyce Stations as case studies for station design. The firms were asked to develop ideas about architecture and landscape design that could ultimately be incorporated into the designs for the new stations. These ideas were the subject of a system wide “Ideas Forum”. The ideas presented at the Ideas Forum, both in terms of station design and landscape, included very high quality design and materials. In addition, the ideas contemplated active uses in and around stations spilling into, and integrating with, the surrounding neighbourhoods. This exercise created high expectations for the stations.

Following the system wide Ideas Forum, a specific design forum for Renfrew and Rupert Stations was held at Thunderbird Community Centre March 31, 1999. This was followed by a design workshop for both stations on April 17, 1999 at the Stay ‘n Save in Burnaby. Participants, largely residents and tenants of the immediate industrial area, providedcomments to the station architects and City staff on station design issues and station precinct concerns, including access, station “look and feel”, transit connections and supportive uses. On July 20, 1999 at Thunderbird Community Centre, station architects and landscape architects presented preliminary station and landscape designs.

In addition to these public meetings, City staff and RTPO have had several individual meetings with adjacent property owners, including, in the case of Renfrew Station, Delasalle Properties Ltd., Universal Supply Co. Ltd. and Bentall Development Corporation; and in the case of Rupert Station, the owner of the Liquor Control Board site northwest of the station and the developer’s representative for the site directly north of the station currently owned by HFT Vancouver/East Broadway, Inc., the location of a mini warehouse storage facility, now under construction.

Following is a summary of comments recorded at the above events:

· Station design concerns, including crime and safety, noise and visual impacts, integrating the stations in the neighbourhoods, consideration of traffic and pedestrian patterns and future development (particularly relating to elevated guideway and stations near residential areas and schools);
· The connectivity of the SkyTrain system with other modes of transportation, including bus, car, bicycle, and pedestrian traffic;
· Potential for loss of trees and green space, and impacts on environmentally sensitive areas;
· Mitigation plans for loss of trees and green space;
· Noise during construction, operation and maintenance of SkyTrain lines and stations;
· Legacy opportunities-including a multi-use pathway along the length of the guideway and a greenway.

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