Agenda Index City of Vancouver

ADMINISTRATIVE REPORT

TO:

Vancouver City Council

FROM:

Director of Carnegie Centre, in Consultation with the City Engineer

SUBJECT:

Vancouver Agreement Health and Safety Initiative - Redesign and Reconstruction of the South-west Corner of Main and Hastings

 

RECOMMENDATION

GENERAL MANAGER'S COMMENTS

COUNCIL POLICY

On July 28, 1998, Council confirmed principles to provide general guidance for Downtown Eastside actions and planning, which include providing adequate services for treatment of addiction, improving conditions at the street level, reducing the amount of drug-related crime, and encouraging legitimate commercial activity.

On September 21, 1999, Council approved a funding allocation of $2.5 million toward Downtown Eastside initiatives in the 2000-2002 Capital Plan with specific reference made to the provision of improvements to the public realm.

On May 15, 2001, Council approved the Framework for Action - a Four Pillar Approach to Drug Problems in Vancouver, which contains a goal to work toward the restoration of public order by reducing open drug scenes.

PURPOSE AND SUMMARY

This report seeks Council's approval of up to $540,000 in capital funds to make physical changes to the corner of Main and Hastings. This project is part of the City's contribution to the Vancouver Agreement's Health and Safety Initiative. The intent is to help reduce the open market in illegal drugs at this intersection, thereby improving public access to the Carnegie Centre, Chinatown, Strathcona and Gastown. The proposed changes include improving visibility near the public washrooms by removing the awning structure; securing, expanding and weather protecting the Carnegie Centre patio; narrowing the Main Street sidewalk; renovating the public washrooms; and improving the lane adjacent to the Roosevelt Hotel.

BACKGROUND

The Main and Hastings Corner
The intersection of Main and Hastings is an important crossroads linking the Downtown Eastside, Chinatown, Gastown and Strathcona communities. The Carnegie building at the south-west corner was built in 1901-02. It is listed in the "A" evaluation category on the Vancouver Heritage Register and is provincially designated.

Over the past five years, the corner has become badly congested and frequently unsafe. Patrons of the Carnegie Centre, pedestrians, transit passengers, public washroom users and a large addicted population all co-mingle in this limited space. It is not uncommon for more than one hundred people to be present on the east side of the Carnegie Centre. Access to the Centre is significantly inhibited by this situation. In addition, there are impacts on the surrounding neighbourhoods - especially Chinatown - partly due to the perception of an unsafe environment and partly because of the drug-related crime which tends to cluster near places where users congregate.

Vancouver Agreement Health and Safety Initiative
The proposed redesign of the corner of Main and Hastings is part of a comprehensive strategy in the Vancouver Agreement's First Focus Health and Safety Initiative. This includes expansion of health services in the Downtown Eastside and elsewhere in the region. The redesign is closely integrated with companion proposals to develop a Health Contact Centre at the nearby Roosevelt Hotel and to transform the Carnegie Outdoor Street Program to provide more outreach services for both facilities. Development permits have been issued for the corner redesign as well as for the Health Contact Centre, which also has a building permit.

DISCUSSION

The Vancouver-Richmond Health Board is scheduled to have the Contact Centre operatingby December of this year. It will be one of the main points of entry into expanded health and treatment services. Once the facility is open, work is proposed to begin on reconstructing the corner. At that point, the Vancouver Police, Carnegie Centre Security staff and Carnegie - Health Connections Outreach staff will be able to refer drug users to the Health Contact Centre and other facilities. As a result, it will then also be possible to step up enforcement to shut down the open drug market at the corner, without dispersing it to other areas.

The proposed changes to the Main and Hasting corner were designed, in consultation with the community, by Birmingham and Wood Architects, the same firm which was involved in the original renovation of the Carnegie Centre. The reconstruction is intended to:

· help close the open drug market adjacent to the public washrooms and the main entrance to Carnegie Centre.
· help increase the secure, useable outdoor space for Carnegie patrons.
· help improve the sense of safety for people using the public washrooms.
· begin to help restore the intersection of Main and Hastings as an important link between the nearby communities and for people from elsewhere who want to visit the area's many cultural and commercial facilities.

The redesign plans include the following:

1. Improve visibility near the public washrooms - The existing concrete cantilever awning over the washroom entrances will be removed as it creates a shelter that harbours people addicted to drugs and drug dealers. In addition, to open up the sidewalk and further reduce hiding places, the existing concrete railings around the washroom entrances will be replaced with a wrought iron style railing in keeping with the heritage aspects of the corner. The Director of Current Planning notes that weather protection is an important feature of the public realm. The provision of a new canopy over the stairs to the washrooms should be considered once the impacts of the illegal drug trade at this corner have been addressed.

2. Renovate the public washrooms - The interior of the public washrooms will be renovated to replace worn out furnishings and to make the facilities more welcoming to its 500-600 daily visitors.

3. Improve sense of safety for transit users - The bus stop on the south side of Hastings Street currently in front of the Carnegie Centre will be relocated to the other side of Main near the Royal Bank. The bus stop on the east side of Main Street currently in front of the public washroom will be moved south one bus length.

4. Expand and secure the Carnegie Centre patio - The raised patio on the east side of the Carnegie Centre will be extended to the edge of the washroom stairs. A metal fence will be placed around the perimeter of the patio. The existing wheel-chair ramp will be retained. However, access and exit for the patio for able-bodied partons will be from within the Centre. The patio itself will have a glass canopy, and Carnegie patrons will be able to sit outside to socialize and have refreshments provided by seniors' volunteers. These changes are compatible with the designated building's heritage features.

5. Provide less space for congregating near the public washroom - Expanding the patio area will narrow the sidewalk on the west side of Main to same standard width as that which is currently in front of the Chinatown commercial retail outlets just south of Carnegie. This will further discourage large numbers of people from congregating at the corner.
6. Improve the appearance of the lane between the Carnegie Centre and the Roosevelt -The lane west of the Carnegie Centre will serve as the entry to the Health Contact Centre. Its paving and lighting will be improved. The intent is to make this a more attractive pedestrian space for access to the Health Contact Centre, as well as for some outdoor programming. Currently a small number of pedestrians and vehicles use this lane. Ambulance and Fire Service staff have indicated a preference to keep it open to vehicular traffic. Police are concerned that this not have an adverse effect on nearby Chinatown businesses. They will be monitoring drug-related activities in the lanes. Should there be an increase, Police recommend appropriate barriers be installed quickly to restrict vehicular and/or pedestrian movement. Therefore, funds will be set aside for this purpose.

Good Neighbour Agreement
As a condition of the Development Permit for the Main and Hastings reconstruction and the other facilities proposed in the Vancouver Agreement First Focus Health and Safety Initiative, the Carnegie Centre has agreed to a number of Good Neighbour conditions. These include participation in a Neighbourhood Liaison Committee to engage the community in monitoring the impacts of the Initiative, and to help adjust programs where necessary.

VANCOUVER POLICE DEPARTMENT COMMENTS

In the Development Permit review process, the Vancouver Police Department indicated that it supports the Carnegie redesign and the companion health facilities of the Health and Safety Initiative. The Inspector for the Downtown Eastside has concluded there is an urgent need to reduce the amount of space available for illegal activity at the corner of Main and Hastings and to improve sight lines to help police monitor behaviour on the street. He is also concerned that drug-related activity not increase in the lanes adjacent to Chinatown and will be monitoring the situation to determine whether further design changes are needed. The Police Department will continue to work with the Health Board, City staff and the community to develop a comprehensive health and safety strategy for the area.

PUBLIC CONSULTATION

Over the last two years there has been considerable public discussion about the Carnegie Outdoor Street Program, the Framework for Action and the development permits for this project and the proposed facilities in the Vancouver Health and Safety Initiative. This report has been informed by this extensive public input and debate.

Although there are considerable differences of opinion about several of the proposed facilities, there has been a great deal of community involvement in the redesign of the Mainand Hastings corner and widespread support for carrying out the construction in a timely manner.

Surveys conducted last year at the corner involving Carnegie patrons, the general public and drug users generated information which contributed to this design plan. Consultations were also carried out with staff from Translink, Engineering Services, Telus, Fire and Rescue Services, and the Vancouver Police Department. A consultative committee that included representatives of the Carnegie Centre, the City, the Vancouver Area Network of Drug Users, and the Chinese business community worked with the architect to produce the plan submitted in this report.

The only significant issue concerned whether the "T" lane between the Carnegie Centre and the Roosevelt Hotel should be blocked off to vehicles or pedestrians. Staff from Ambulance and Fire Services strongly recommend the lane remain open to vehicles. It is used for emergencies, as well as for servicing the adjacent buildings and staff often need quick access. Program staff and many community representatives feel bollards should be used to restrict vehicular access, while allowing free pedestrian circulation. Chinatown representatives want the lane gated to prevent illegal drug use from migrating into the heart of Chinatown. As a result of this consultation, staff are recommending that up to $30,000 be set aside so that if there are negative impacts from keeping the lane open to vehicular or pedestrian movement, they can be quickly addressed with bollards or gating.

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 Capital Budget to encourage new businesses to locate along Hastings Street. The 2001 Capital Budget included an allocation of $1,985,000 for the Downtown Eastside, with funding to specific projects subject to Council approval.

Facilities Development staff have reviewed cost estimates and drawings submitted by Birmingham and Wood for the Main and Hastings reconstruction and have calculated the total cost to be about $540,000. This includes construction costs of almost $400,000 of which $215,000 is for removing the existing canopy and reconstructing the sidewalk, patio and railings, $71,000 is for renovating the washrooms, $87,000 is for improving the lane, and $25,000 is for landscaping and miscellaneous construction costs. The non-construction costs total about $110,000 for consultant design, project management, permit fees, contingency and GST. In addition, $30,000 is set aside should there be a need to improve security and construct a gate in the lane. Staff recommend that up to $540,000 be approved for this project from the 2001 Capital Budget allocated for revitalizing the Downtown Eastside.

CONCLUSION

The reconstruction of the south-west corner of Main and Hastings is part of a strategic planto reduce the impacts of the illegal drug trade and recover this important and valued public space for the enjoyment of the community as a whole. It will provide much needed controlled outdoor space for the Carnegie Community Centre, and make access to the Centre safer and more welcoming. In addition, it will help re-establish an important crossroad linking and strengthening the Downtown Eastside, Chinatown, Gastown and Strathcona.

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