Agenda Index City of Vancouver

ADMINISTRATIVE REPORT

TO:

Vancouver City Council

FROM:

General Manager of Community Services

SUBJECT:

Chinatown Revitalization Program: Proposed Public Realm Improvements to the Forecourt of the Dr. Sun Yat-Sen Park and Garden and the Chinatown Memorial Square

RECOMMENDATIONS

GENERAL MANAGER OF COMMUNITY SERVICES' COMMENTS

COUNCIL POLICY

On July 28, 1998, Council confirmed principles to provide general guidance to actions and planning in the Downtown Eastside, Chinatown, Gastown and Strathcona which include improving conditions at the street level, encouraging legitimate commercial activity, reducing crime, and helping community people to find allies and seek a common future.

On September 21, 1999, Council approved a funding allocation of $2.5 million toward initiatives to revitalize the Downtown Eastside in the 2000-2002 Capital Plan.

PURPOSE AND SUMMARY

This report seeks Council's approval of funding for two public realm improvements identified by the Chinese community to help begin the revitalization of Chinatown. One will provide a sculpture in the Chinatown Memorial Square at Keefer and Columbia Streets to commemorate the historical contributions made by Chinese Canadians. The other will help make the forecourt of the Dr. Sun Yat-Sen Park and Garden and the adjacent portions of the Chinese Cultural Centre more functional as a focal point for public events. This will be done by providing better drainage, a performance space, interesting views into the surrounding building and connection to the garden and park. The source of funding for both these initiatives is from the Capital Plan allocation for revitalization of the Downtown Eastside.

BACKGROUND

The proposed public realm improvements are intended to help begin the revitalization of Vancouver's Chinatown and renew its traditional status as the cultural heart of British Columbia's growing Chinese community. To understand the significance of these and other revitalization efforts, it is helpful to review the history of the Chinese community in our city and province. As indicated below, it is a history filled with discrimination, determination and community pride.

A Brief History of Vancouver's Chinese Community
Chinese immigrants first arrived in Canada in 1858, from San Francisco, at the start of the Fraser River gold rush. Between 1881 and 1885, some 15,700 labourers came from China to construct the western section of the Canadian Pacific Railway's cross country line. Hazardous working conditions, severe winters, and poor facilities contributed to an extraordinary high death toll. When the railway was completed in 1885, some labourers returned to China while others settled in Barkerville, Cumberland, Victoria and Vancouver.
They worked in the forests, sawmills, mines, canneries, and domestic services.

Despite the Chinese labourers' contributions to the railway, discriminatory restrictions on Chinese immigrants began in 1888 and did not ease until after World War II. In 1947, the Federal government acknowledged the contributions of Chinese Canadian war veterans by repealing the discriminatory immigration act and granting Chinese Canadians the right to vote. As a result of these and other measures and circumstances, the Chinese Canadian population in Vancouver has grown steadily over the last half century. Greater Vancouver now has the highest concentration of people of Chinese ancestry of any metropolitan area outside of Asia. The 1996 total of 288,780 Chinese Canadians amounted to 16% of the region's population. In the City of Vancouver, Chinese Canadians constituted 28% of the total population.

Decline of Chinatown
Historically, most of Vancouver's Chinese population lived in or near Chinatown. This was partly due to choice and partly due to the impacts of discrimination which made it difficult for them to live elsewhere. The area developed a unique architecture and mix of specialty stores, restaurants, social clubs and tourist attractions. This was recognized in 1971 when the Provincial Government of British Columbia designated Chinatown as an Historic District to preserve its character and heritage. In recent years, however, Chinatown's identity as the centre of Vancouver's Chinese population has been challenged by a variety of factors. These include:

· the migration of second and third generation Chinese families to emerging Chinese communities and commercial centres in other parts of the city and the region;
· the choice of most new immigrant families to live in new emerging Chinese communities, to take advantage of lower land value and cheaper accommodations;
· the "global" view of economic opportunity of many new Chinese business leaders who have little or no dependence on or connection to Chinatown;
· changes in regional shopping patterns resulting in the closing of Woodwards and other city-serving retail stores and the economic decline of the Downtown Eastside and surrounding communities;
· parking which is less accessible and more expensive than in the suburbs; and
· the perception and fear of crime and other impacts of the illegal drug trade.

Revitalization of Chinatown
The Chinatown Revitalization Program began in 1999 as part of the Downtown Eastside Community Revitalization Program. It is supported by City staff and funds from the National Crime Prevention Centre and the senior governments through the Vancouver Agreement. A Revitalization Committee was formed which brings together more thantwenty of the area's social, cultural, resident and business groups to work with the City and other levels of government to help identify and implement a renewed vision for Chinatown.

With the help of Andy Yan, a graduate student from Vancouver who is completing his thesis at UCLA, the Committee has reviewed the experience of Chinatowns across North America, many of which are facing similar challenges. This research indicates that successful Chinatowns have strategies that are geared not only to tourism, but also to forming strong linkages to surrounding communities, encouraging nearby residential development and attracting young Chinese people back to the area. They also build on their strengths by enhancing significant cultural facilities, not only for visitors from elsewhere, but to re-establish connections with people of Chinese descent and others who live in Vancouver and throughout this region.

Thus far, a number of initiatives have been undertaken which are in keeping with these findings:

· a retail survey of Chinese Canadians in Vancouver;
· a land use inventory showing how Chinatown has changed over time;
· an analysis of other Chinese commercial districts in Vancouver and Richmond;
· Chinatown Lane Cleanup (ongoing since last year);
· Silk Road walking route linking Chinatown to the Library Precinct;
· Sports Tournament and other activities for youth;
· Chinatown Arts Fair at the Chinese Cultural Centre (June 30 - September 1);
· Chinatown Festival (July 28 / 29);
· the installation of the Western Han Dynasty Bell in Shanghai Alley; and
· funding for the Chinatown Millennium Gate spanning Pender Street.

The Committee has also identified two long-standing initiatives which require City capital funding to help strengthen the important complex of cultural facilities at the western end of Chinatown - the installation of the Chinatown Memorial Square Place Marker and improvements to the small park next to the Chinese Cultural Centre.


DISCUSSION

Chinatown Memorial Square
The Chinatown Memorial Square (former Keefer Triangle) was created in 1995 in conjunction with the construction of the Chinatown Parkade and the diversion of Keefer Street to its current alignment. The site was intended to provide an attractive pedestrian-friendly public space close to the parkade, Dr. Sun Yat-Sen Park and Garden, Chinatown Museum and Chinese Cultural Centre. In 1997, a design for a hard-surfaced, treed public open space was developed by Chinatown merchants, property owners, City staff and consultants. Flexibility was central to the design of the site. It was intended that a tourist kiosk, public art project, commemorative monument or other projects be incorporated into the plaza.

In 1999, Council approved a public art budget of $100,000 for the site. This was to be awarded through a national competition. A Chinatown Memorial Square Beautification Committee made up of representatives from ten Chinatown-based organizations was established to help in the selection process. Unfortunately the submission acceptable to the Committee could not be implemented within the defined budget. As a result that competition was cancelled.

However, after contributing many hundreds of volunteer hours, the Chinatown Memorial Square Beautification Committee remains committed to the installation of a culturally appropriate statue on this site. It has agreed to raise $10,000 of the funds required for this project. The artwork they have selected would be identifiable with Chinatown and acknowledge the historical hardships and contributions of Chinese pioneers, specifically railway workers and veterans. It will also help improve Memorial Square as a meeting place and point of reference for residents and tourists.

This view is endorsed by the Chinatown Revitalization Committee and other groups in the community. It is seen as a contribution to creating a layer of significant commemorative and celebratory monuments including the Chinatown Millennium Gate, Dr. Sun Yat-Sen statue, Han Dynasty Bell, Silk Road, etc. which serve to define a unique cultural precinct within the broader boundaries of historic Chinatown.

The Public Art Program would like to support the Beautification Committee's initiative by placing the Marker on the City Public Art Registry and covering its maintenance costs under the Public Art Maintenance Reserve. Consistent with all such proposals sited on City lands, staff will review the Monument's durability and finishes prior to installation as part of the standard technical audit to minimize its future maintenance needs.

Forecourt of the Dr. Sun Yat-Sen Park and Garden
The forecourt of the Dr. Sun Yat-Sen Park and Garden is a park owned and maintained by the Park Board. It is surrounded on three sides by the Chinese Cultural Centre and serves as a courtyard to that facility. The Centre's programming includes youth and adult educational courses, language schools, cultural talks, literary events, exhibitions, performances, Chinatown tours and special community services.

The nearby Dr. Sun Yat-Sen Park and Classical Chinese Garden - among Vancouver's most popular tourist attractions - were completed in 1986. The Chinese Cultural Centre Museum and Archives were opened in 1998. The forecourt serves as an internal courtyard linking all four facilities and is a public space that is the focus of many cultural and recreational activities for the community. It functions as a meeting place, a site for festivities andrecreation, and a way to access the Dr. Sun Yat-Sen Park and Garden and the Museum. This summer, the forecourt is being used by the weekly Chinatown Arts Fair, an event concurrent with the Rive Gauche street market which will help build inter-community linkages.

The forecourt is very much the heart of the cultural precinct of Chinatown, and could be made more comfortable, accommodating and functional. Presently it suffers from drainage problems that make the grass area unusable in damp conditions. Additionally, ground is being dug up at the edge of the grass area for the hiding of illicit drugs.

The proposed improvements will greatly enhance the usability and attractiveness of this park. The proposal is to redevelop the forecourt while retaining a green image for the area. The forecourt symmetry will be retained in the design through a "circle in the square" concept which will enhance pedestrian flows on the four sides of the forecourt. Trees will be planted in each of the four corners. The grass circle will be slightly mounded to promote improved drainage in conjunction with the continuous perimeter drain around the lawn. These changes will allow for a wide variety of programs - art displays, music, dance, and other performances - to take place in the outdoors in the forecourt, as well as in the adjacent buildings and gardens. The new shape will also discourage the hiding of drugs in the soil because their location will be more difficult to identify.

The Chinatown Revitalization Committee has requested that these improvements be implemented as quickly as possible to complement its priority initiatives. The Park Board does not have the capital funds to carry out this work at this time. However, Park Board staff have been involved as partners in developing the recommended improvements. They will be reporting to seek Park Board approval of this project on July 30, 2001. They are recommending approval since it is in keeping with the Park Board's Mission and Vision to provide, preserve and advocate for parks, open spaces and leisure services to enhance the well-being of individuals and communities. Subject to approval by the Park Board, Park Board staff are prepared to supervise the implementation of this project.

VANCOUVER POLICE DEPARTMENT

The Vancouver Police Department strongly supports the proposed improvements to the forecourt of the Dr. Sun Yat-Sen Park and Garden, Chinese Cultural Centre and Chinese Memorial Square which will enable more programming and positive activities in the area. The improvements will help bring more people into the neighbourhood for healthy and safe activities thereby assisting to discourage illegal activities in and around the forecourt. These improvements will also help improve the quality of life in the area and will create a healthier and safe community.

FINANCIAL IMPLICATIONS

The 2000-2002 Capital Plan included $2.5 million as the City's contribution to projects associated with revitalization of the Downtown Eastside. These funds are being allocated to the capital budget over the three years of the plan. In 2000, $315,000 was approved as part of the 2000 Capital Budget to encourage new businesses to locate along Hastings Street. The 2001 Capital Budget included an additional $1,985,000 for the Downtown Eastside, with funding to specific projects subject to Council approval.

It is recommended that up to $120,000 be allocated from the 2001 Capital Budget for the Downtown Eastside for the construction and installation of the Chinatown Memorial Square Place Marker.

Design and construction work to physically improve the forecourt of the Dr. Sun Yat-Sen Park and Garden is estimated to cost $80,000. In addition, it is estimated that about $30,000 is required as a grant to the Chinese Cultural Centre to design and help make needed improvements to portions of the building which surround the forecourt. This will improve the appearance and enliven this important public space. Thus, $110,000 is required from the 2001 Capital Budget allocation for the Downtown Eastside. The park improvements and increased usage may result in some increased maintenance. Any additional operating costs for this proposal will be included in the Park Board's budget request for 2002.

CONCLUSION

Improving the condition of the Chinatown Memorial Square and the forecourt of the Dr. Sun Yat-Sen Park and Garden and the adjacent portion of the Chinese Cultural Centre are important elements in the economic and community revitalization of Chinatown. In part they will contribute to the revitalization of the area by helping enliven these important public spaces. They will help build confidence in the potential of groups within Chinatown to work effectively with one another and with the City. These objectives are consistent with Council's objectives for the area and with the purpose for establishing the 2000-2002 Capital Plan allocation for the Downtown Eastside.

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