Agenda Index City of Vancouver

POLICY REPORT
URBAN STRUCTURE

TO:

Vancouver City Council

FROM:

Director of Current Planning and General Manager of Engineering Services

SUBJECT:

Proposed Consultancy - Urban Design and Streetscape Concept for Pacific Boulevard and Pacific Street (Burrard Street to Cambie Bridge)

 

RECOMMENDATION

A. THAT, pursuant to the Council's instructions of July 26th, 2001, the Terms of Reference, attached as Appendix `A,' be adopted for the preparation of a an urban design and streetscape concept for Pacific Boulevard and Pacific Street (Burrard Bridge and Cambie Bridge).

B. THAT, pursuant to the Council's instructions of July 26th, 2001, a budget of $58,900 be approved for the preparation of a design concept for Pacific Boulevard and Pacific Street (Burrard Street to Cambie Bridge), with the source of funding being from the 2001 Community Services operating budget, and further that funding for this study be from savings in the 2001 operating budget.

GENERAL MANAGERS' COMMENTS

CITY MANAGER'S COMMENTS

COUNCIL POLICY

On April 10, 1990, Council adopted an "overall pedestrian and boulevard area treatment scheme for False Creek North" that included portions of Pacific Boulevard between Richards Street and Griffiths Way, immediately east of BC Place Stadium.

On July 26th , 2001 Council directed the Director of Current Planning and the General Manager of Engineering Services to report back on an urban design review of Pacific Boulevard between Burrard and Cambie Bridges, the review to be undertaken by Allan Jacobs, author of "Great Streets".

PURPOSE AND SUMMARY

Council requested staff to frame a Terms of Reference and funding estimates for the preparation of an urban design and streetscape concept for Pacific Boulevard between the Burrard Bridge (immediately east of Burrard Street) and Cambie Bridge (immediately west of the intersection of Nelson Street and Pacific Boulevard).

Council's initiative acknowledges that there is no overall urban design and streetscape concept for Pacific Boulevard and Pacific Street. While there is a streetscape concept for portions of Pacific Boulevard between Richards Street and Griffiths Way, staff agree that it is timely to consider a fresh and comprehensive approach looking at issues and Council initiatives that have emerged since its approval in 1990. An overall concept will ensure that this street emerges as one of Vancouver's greatest urban streets. The review will provide an urban design and streetscape concept that ensures the buildings, street trees, the street and sidewalks, pedestrian movement, parking, vehicular traffic and sidewalk activities can all positively work together to create a great street.

The Council-approved plan from this review will provide needed guidance in the implementation of Council initiatives such as the proposed streetcar and bike lanes, where the location of these facilities on Pacific Boulevard has yet to be determined. The following should also be considered (also see map on page three):

· roadway widths, sidewalk locations, crosswalk arrangements, parking and other key street qualities for typical blocks;
· the addition of trees between Burrard Street and Homer Street;

Issues

General:
· Tie together Urban Design and Streetscape Elements such as buildings (setbacks and entrances) and road and sidewalk features to create a great street.

· Burrard Street to Cambie Bridge: location of bike lanes?

Burrard Bridge to Homer Street:
· Granville Bridge Ramps.

· Pedestrian Connection to Granville Street.

· Difficult environment for pedestrian & cyclists.

· Streetscape improvements not in place.

· Few trees: Burrard Street to Seymour Street.

Homer Street to Cambie Bridge:
· Streetscape improvements in place from Cambie Bridge to Homer Street.

· Location of proposed Streetcar route.

· Connections with existing & proposed City Greenways.

·the awkward and inhospitable environment for pedestrians and bikes adjacent to the Granville Bridge on- and off-ramps adjacent to Pacific Boulevard;
· opportunities for animating sidewalks, including sidewalk cafes, pedestrian movement and gathering places; and
· the establishment of a functional and safe connection between the City Centre Greenway and the Seaside Route (seawall) and connections to other key pedestrian and cycling routes such as Davie Street, Granville Street and Burrard Street.

Council's request that Allan Jacobs be retained for this study acknowledges his preeminence in the field of urban planning and street design. Mr. Jacobs is available to undertake the consultancy and he now works in collaboration with Elizabeth Macdonald, an urban designer and architect, through their firm Cityworks. They will lead a team of urban designers, architects and engineering consultants.

Should Council chose to move ahead on this initiative, it is strategic that it occur during the first part of 2002 because development is now proceeding in the Beach neighbourhood. A schematic urban design and streetscape concept will need to be available no later than mid-year to ensure that it can be implemented between Homer Street and near the Granville Bridge on the south side of Pacific Boulevard as residents move into the area.

Based on the schematic plan, implementation on streetscaping elements, greenway connections and other significant elements such as changes in the vicinity of the Granville Bridge on- and off-ramps (at Pacific Street) could proceed as funding becomes available from a variety of sources including the Capital Plan and contributions from development on Pacific Boulevard and Pacific Street. Discussions with the developer of False Creek North are on-going on the issue of the financial responsibility for streetscape improvements. There is no conclusion on this issue and staff will report the matter to Council when a conclusion is reached.

Public input on the design concepts will be obtained through open houses and a community design charette. Interested parties and groups will be also consulted.

It is proposed that the study will occur over 5.5 months and it is estimated, in liaison with the potential consultants, that it can be completed at a cost of $58,900. It is proposed that the study be funded with surplus funds in Community Services 2001 budget.

BACKGROUND

On July 26, 2001, Council approved the following resolution:

"THAT the Director of Current Planning and the General Manager of Engineering Services report back on an urban design review of Pacific Boulevard between Burrard and Cambie Bridges, the review to be undertaken by Allan Jacobs, author of Great Streets."

Following up on Council's instructions in July, Planning and Engineering staff have met with Allan Jacobs and Elizabeth Macdonald of Cityworks to prepare a work programme and confirm a consulting fee for this work. Staff acknowledge that Council's choice of Allan Jacobs makes sense as he has extensive experience in street design as the former Director of Planning for the City of San Francisco, a Professor Emeritus in planning and urban design at the University of Berkeley and the author of the book "Great Streets." This book is widely viewed as the best in-depth look at the design and qualities of great streets in cities around the world. Elizabeth Macdonald is an architect and Professor in the UBC Community and Regional Planning Masters Programme and has extensive background in urban design and landscape architecture. Ms. Macdonald and Mr. Jacobs, together with another colleague, have just published a new book, "The Boulevard Book: History, Evolution, Design of Multiway Boulevards."

Pacific Boulevard was initially designed in the early 1980's as the major street connecting Quebec Street with Pacific Street at its intersection with Richards Street. A public realm scheme involving trees, a sidewalk improvement and street furniture was constructed as part of the Yaletown Edge, Roundhouse and Quayside neighbourhoods between the Cambie Bridge and Homer Street.

Hereafter, when this report refers to Pacific Boulevard, this reference also includes Pacific Street between Richards and Burrard Streets.

DISCUSSION

Although a portion of Pacific Boulevard has benefited from streetscape improvements, there are a number of issues which indicate that the street could benefit from an overall design concept. The study offers the opportunity to integrate into one coherent design a variety of outstanding Council directions for Pacific Boulevard. These and other opportunities are summarized below and in the map on page three.

Bike Lanes on Pacific Boulevard

On July 28, 1998, Council approved the following resolution:

"THAT Engineering Services staff work with the Bicycle Network Sub-Committee and with Planning Department staff to investigate the feasibility of painted bicycle lanes on Dunbar Street (in conjunction with the Community Vision process) and Pacific/Expo Boulevards (in conjunction with the urban design review of Pacific Boulevard and with the Downtown Transportation Plan) with a report back to the Bicycle Advisory Committee and to City Council."

There is an opportunity through this proposed consultancy to resolve the best location for bike lanes or other facilities for cyclists.

The Streetcar on Pacific Boulevard

On March 23, 1999, Council approved the following resolution:

"THAT, extending from the South False Creek line, Council endorse a routing from Science World to Waterfront Station via Quebec, Columbia and Cordova Streets as Phase One, and a general routing from Science World to the Roundhouse Community Centre, along Pacific Boulevard and Davie Street as Phase Two of the Downtown Streetcar System.."

There is no clear decision on where and how the streetcar will be located within the roadway right-of-way and integrated with adjacent development. This can be resolved through the proposed consultancy.

Granville Bridge Ramps

There is a particularly poor environment for pedestrians and cyclists between Seymour and Howe Streets where the on- and off-ramps for the Granville Bridge intersect with Pacific Boulevard. The study will develop a variety of options for this area for Council's review. Council will have the opportunity to approve a design which can be constructed when funding becomes available.

Urban Design and Streetscape Elements

An important product of this study will be the development of two or three conceptual designs which show plans and cross sections of typical blocks. The art of designing a great street is to tie together all the elements of a street such as the buildings (particularly elements such as storefront windows, weather protection, setbacks and entrances), sidewalk locations, opportunities for sidewalk activities, crosswalk arrangements, roadway widths, left turn bays, parking, trees and street furniture so that they work well together as a whole.

Connection with the City Centre Greenway and other Key Routes

The City Centre Greenway begins at Stanley Park running through the West End and then along Helmcken Street arriving at the intersection of Cambie Street and Pacific Boulevard. The route and design of the connection between the City Centre Greenway and the Seawall and how it crosses Pacific Boulevard needs to be identified.

Connections with other key routes such as Davie Street and Granville Street will also be considered.

Existing Streetscaping Improvements (Sidewalks and Trees) (Homer to Cambie Bridge)

At this time staff and Mr. Jacobs do not envisage major changes between the building walls and the street curbs in the area between Homer Street and the Cambie Bridge because current improvements in place represent a significant investment. Should possible modifications emerge from the analysis or public input, they will be reported back to Council as options for future alterations. As noted above, there are opportunities for further improvements and modifications between the curbs of these blocks, further enhancing the value of the existing investment in streetscaping improvements.

The Need for Streetscaping Improvements (Homer to Burrard Bridge)

There are significant opportunities for improvements in this area. The Beach neighbourhood is under construction and although there is an approved scheme for streetscaping improvements on the blocks between Homer and the Granville Bridge, it has not yet been constructed. Also, Pacific Street is an important street for the Granville Slopes neighbourhood and there has never been an urban design and streetscape concept for the blocks between Granville Bridge and Burrard Bridge. Urban design considerations would focus on setbacks and those elements that contribute to a functional and attractive street. They are now, for the most part, unattractive and unfriendly for pedestrians and cyclists. This would be a major focus of the consultancy.

Traffic Capacity, Urban Design and Streetscape Proposals and the Downtown Transportation Plan

The study will respond to the conclusions of the Downtown Transportation Plan on the role of Pacific Boulevard in the downtown and the desired capacity of this street in the downtown network. Proposals will be fully reconciled with the findings of this emerging plan.

Community Involvement

This study will provide a unique opportunity for the involvement of residents and business people of Granville Slopes, New Yaletown, and the Beach, Roundhouse and Quayside neighbourhoods in designing one of the principal streets in their community. It is proposed that an initial open house would be conducted with a follow-up day-long community design charette at the Roundhouse Community Centre. Staff will also consult with Translink, the BC Trucking Association, the Bicycle Advisory Committee, the Downtown and the Yaletown Business Improvement Associations, the Downtown Vancouver Association and other interested parties. Council will be presented with documentation of comments from all participants on the design concepts.

A Proposal to Prepare an Urban Design and Streetscape Concept for Pacific Boulevard

In response to Council's resolution, staff asked that Jacobs Macdonald: Cityworks prepare a work programme and cost estimate for preparing the design concept. The proposal is summarized below in three phases:

Project Initiation (1.5 months)
· initial meetings to discuss the problems and potential of the street;
· preparation of base maps and research and analysis;
· preparation for the community charette; and
· field observation.

Design Options (2 months)
· the organization of a community design charette on design options to provide the public with an opportunity for input;
· the preparation of two or three conceptual options for the redesign of Pacific Boulevard;
· the presentation of the alternatives at an open house;
· the identification of a preferred option; and
· a Council workshop.

Final Schematic Design and Council Decision (2 months)
· the preparation of a final schematic design for all city blocks and intersections, including plans, cross-sections and diagrams to convey conceptual ideas;
· drawings that convey the character of the design such as trees, street lights, pedestrian lights, benches, crosswalks and paving patterns;
· preparation of cost estimates; and
· staff report to Council for a decision.

Timing

It is proposed that the study would begin in December and conclude early May 2002.

FINANCIAL IMPLICATIONS

The following budget of $58,900 is proposed for the preparation of the plan:

Funding ($10,000) is recommended for Engineering studies because considerations involving the Granville Bridge off- and on-ramps and their support structures (where they meet Pacific Bouldevard) will require traffic and structural engineering analysis.

Staffing costs related to the preparation of background information, liaison with the consultant, the organization of the community design charette and other staff-related costs will be absorbed in the Departments' current work programme.

It is recommended that the source of funds should be provided from savings within the 2001 operating budget

CONCLUSION

In the Central Area, Vancouver's streets are among the most significant public spaces and are key determinants of a neighbourhood's image and quality of life. The continuity of Pacific Street and Pacific Boulevard is emerging as a main street for the Granville Slopes, New Yaletown and the Roundhouse, Quayside and Beach neighbourhoods. While this street has the potential to be one of central Vancouver's great streets, in many locations landscaping and pedestrian amenities are insufficient. There are also a number of projected initiatives such as the streetcar and bike lanes which require a site and urban design plan to tie them and other streetscaping improvements together into a properly integrated and attractive scheme.

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TERMS OF REFERENCE
PACIFIC BOULEVARD URBAN DESIGN STUDY

PROJECT GOAL

The goal of the project is to prepare a schematic urban design and streetscape concept for Pacific Street and Pacific Boulevard between the Burrard (immediately east of Burrard Street) and Cambie (immediately west of the Nelson Street and Pacific Boulevard intersection) Bridges.

PROJECT TEAM

The work will be undertaken by a small working Project Team, made up of an urban design/street design consultant (Jacobs Macdonald: Cityworks) and a specialist in streetscape/architectural graphics and presentation drawings, an engineering traffic consultant and appropriate City staff, including engineers, urban designers and planners. The work will be guided by a Technical Advisory Group of City staff, from key Departments (Planning, Engineering and others as may be identified) and will be reviewed by the City's Major Projects Steering Committee.

Task 1: Project Initiation (1.5 months)

B. Preparation of Base Maps (by Vancouver Staff and consulting streetscape/architectural graphics specialist, assume 10 hours)

C. Research and Analysis

D. Additional research based on findings of Tasks B and C (by Vancouver staff)
E. Field observation, based on the research and analysis, including necessary spot counts, pedestrian and vehicular behaviour, etc.

F. Meeting with the Technical Advisory Group in an initial Scoping Session, to review all findings and conclusions to date and to discuss preliminary ideas. Each participant or department to produce a short written statement in the form of a memo that gives its assessment of the range of possibilities.

Task 2: Design Alternatives (2 months)

A. Develop two or three conceptual alternatives for the redesign of Pacific Boulevard.

B. Community Design Charette involving the local community and other interested individuals in the review and further elaboration of design alternatives. The Charette will be organized byCity planning staff. Jacobs Macdonald (assume 4 hours) and the graphics specialist (assume 3 hours) will attend the meeting.

C. Meetings with the Project Team to present and discuss the conceptual design alternatives as they develop. Assume 2 meetings, 3 hours each.

D. Meeting with the Technical Advisory Group to present and discuss the design alternatives. Assume 1 meeting of 3 hours.

E. Community open house to present/discuss the design alternatives, and to convey preferred alternative(s). Organization and running of the open house would be the responsibility of Vancouver staff.

F. Meeting with the Technical Advisory Group to identify one preferred conceptual design plan, which is to be developed as a final proposed schematic design plan.

G. Council Workshop

Task 3: Final Schematic Design Proposal (2 months)

A. Initial Meeting of Project Team to review project status, to review preferred alternative design, to discuss roles and assignments of various City participants, and to discuss schedule.

B. Preparation of a proposed final schematic design plan that shows, graphically:

C. Preparation of preliminary cost estimates. (By Engineering staff, based upon local costs).

D. Meeting with the Technical Advisory Group to present the schematic design.

E. Presentation to the Major Project Steering Committee seeking endorsement from line departments. Assume one hour for Jacobs Macdonald: Cityworks.

F. Preparation of Council Report and presentation to Council undertaken by City staff with

PRODUCT

The products of this study will be:

1. One unbound black and white, 216 mm x 279 mm (8 ½" x 11") vertical format, reproducible copy of the analysis, options and evaluation of streetscaping concepts and recommendations, including draft guidelines and principles for the final schematic design plan.
2. Presentation Drawings for public meetings (including the design charette) and the Council presentation.

TIMING AND BUDGET

The study time frame is 5.5 months with the study beginning in December 2001, with the production of the final schematic design completed no later than April 12, 2002 and the presentation to Council no later than April 30, 2002.

The budget for the study shall be $58,900 and be allocated as follows:

Cityworks $38,950

STUDY COORDINATION

Staff liaison will be with designated Planning and Engineering staff. The study will be completed to the satisfaction of the Director of Current Planning, Larry Beasley and the General Manager of Engineering Services, Dave Rudberg or their designates.

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