Agenda Index City of Vancouver

ADMINISTRATIVE REPORT

TO:

Standing Committee on Transportation and Traffic

FROM:

General Manager of Engineering Services, in Consultation with the Vancouver Police and the Office of Cultural Affairs

SUBJECT:

Proposed Amphibious Bus Tours

 

CONSIDERATION

B. THAT no approval be given to additional Amphibious Bus Tours services in the absence of complete proposals and ICBC and Coast Guard approval of the vehicles.

C. THAT SeaQuest Adventure Tours be requested to sign the Kitsilano Point Good Neighbour Agreement, and to commit to specific measures to reduce vehicle noise and emissions.

D. THAT Amphibious Bus Tour operations be limited to the hours of 10 am to 5 pm, and restrict operations during the Vancouver Children's Festival.

E. THAT the City undertake a study on the feasibility of construction of a new Boat Ramp suitable for Amphibious Bus Tour services within the City. Funding of $10,000 will be provided from Contingency Reserve to be matched by each proponent prior to approval of any route.

F. THAT the Motor Carrier Commission be advised of the above motions, following fulfilment of the items in Motion C.

OR;

G. THAT the Motor Carrier Commission be advised that the City does not support the introduction of Amphibious Bus Tours in Vancouver.

COMMENTS OF GENERAL MANAGER OF ENGINEERING SERVICES

The Police and Engineering Services review indicates that the proposal is technically viable. On the other hand, there is significant public opposition, particularly from neighbourhoods which have been burdened from tourist related operations. As a result, the General Manager of Engineering Services submits A - F or G for Council's consideration.

COUNCIL POLICY

Council recently received the Bus Impact Task Force report which looked at ways to better manage the bus industry within the City.

The Kitsilano Point area and Vanier Park have a "Good Neighbour Agreement" between GrayLine, Vancouver Trolley and the Kitsilano Point Residents Association.

BACKGROUND

Amphibious Bus Tours

Amphibious Bus Tours are in service across North America with over 250 amphibious passenger vehicles. Tours currently operate in Halifax, Montreal, Ottawa, Toronto, Victoria and Seattle among others. These services offer a land and water tour generally in ex-military vehicles modified to carry passengers.

A proposal to begin an amphibious bus tour has been received from SeaQuest Amphibious Tours (see Appendix G), which currently runs a service in Victoria. The company has approval from ICBC and the Coast Guard to operate. It is awaiting Motor Carrier Commission approval; in turn, the MCC seeks City approval of a suitable route. Service is proposed to begin in mid May of this year.

Two other preliminary proposals have also been received from Ride the Ducks and Vancouver Duck Tours. These additional proposals are incomplete at this time.

All three Amphibious Bus Tours are proposing to use the Vanier Park boat ramp, the only public boat ramp within the City. Park Board staff have given SeaQuest approval for use of the boat ramp on a trial basis. The services propose to use the existing tour bus routes in Kitsilano Point (see Appendix A).

Kitsilano Point/Vanier Park

The City, in conjunction with the community, has undertaken a number of initiatives in Kitsilano Point. These have resulted in traffic calming, removal of Tour Bus service from the Maritime Museum, recommendations for changes to Vanier Park, and development of a "Good Neighbour Agreement". The "Good Neighbour Agreement" was developed between the Kitsilano Point Residents Association, Gray Line of Vancouver and the Vancouver Trolley Bus Company to better manage the needs of the tour bus companies and residents.

Vanier Park also contains the only public boat launch within the City, a double boat launch with public parking, administrated by the Vancouver Park Board. The launch provides access into False Creek and English Bay. Park Board staff have reviewed the SeaQuest proposal and have given conditional permission for SeaQuest to use the ramp for a one year trial. Approval has also been granted by the Coast Guard to use False Creek.

Motor Carrier Commission, MCC.

The Motor Carrier Commission, part of ICBC, is responsible for the licensing of motor carriers that transport passengers for compensation. The MCC must also approve the route and schedule of any scheduled tour bus service. Although an independent body, the Motor Carrier Commission has been requesting City comments on tour bus routes prior to approval. This is a direct result of the Bus Impact Task Force initiated by Council.

DISCUSSION

This report discusses the range of issues around the operation of the proposed Amphibious Tour Bus Services. The major focus is on the SeaQuest service, as this proposal is advanced and awaiting Motor Carrier Commission approval, although issues would be similar for all of the proposed services.

Amphibious Tour Proposals

SeaQuest

SeaQuest currently operates a service in Victoria with a 1960's ex-military Lighter Amphibious Resupply Carrier. ( LARC.) The SeaQuest LARC's have been approved for use by ICBC and the Coast Guard.

1960's LARC

Dimensions:

3.0 m wide; 3.2 m high; 10.7 m long

Weight: 3,680 kg

Engine: Cummins V8 Diesel

Capacity: 32 passengers

The vehicle is wider than a regular bus or truck by 0.38m (15") and has a limited speed of 40 - 50 km/h. The width of the LARC requires a permit be obtained to allow operation on City streets, which was provided in January, 2001. Because the vehicle would be used for a regularly scheduled service, a suitable route must also be approved by the MCC, which sought City input on the route. The original route proposed by SeaQuest was rejected by the Police as unsuitable. Accordingly, further processing was delayed pending identification of a suitable route. This resulted in a review of various route options and the suitability of the vehicle for use on these routes by Police and Engineering staff.

Ride the Ducks

Ride the Ducks operates in many American cities and uses refurbished WW2 era DUKW's (D-built in 1942, U-utility, K-all wheel drive, W-twin rear axle). Ride the Ducks have been in discussions with staff over the possibility of operating DUKW's in Vancouver. The proposal is preliminary in nature as, at present, the DUKW is not approved for use in salt water in Canada.

Refurbished DUKW

Dimensions:
2.56 m wide, 3.56 m high, 10.9 m long

Weight: 7,700 kg

The DUKW would be required to use truck routes due to its weight and number of axles, except to access or leave a destination. The proposal, although preliminary, has suggested use of Canada Place as a starting point. The use of Canada Place may present issues due to the existing congestion and the slow loading, via a ladder, of the vehicle.

Vancouver Duck Tours

Vancouver Duck Tours have an application pending with the Motor Carrier Commission to operate an Amphibious Bus Tour from Gastown to Vanier Park using a custom-made Hydroterra vehicle. This is a preliminary proposal as the vehicle has not been approved for use in British Columbia.

Hydroterra (see Appendix C)

Dimensions: 2.6 m wide, 3.8 m high, 11.9 m long

Weight: unknown

Engine: Allison 7.2 L Diesel

Capacity: 49 passengers

A preliminary route has been provided to the MCC that would run from Gastown to Vanier Park. This vehicle is 3.81m (12'6") high, the maximum allowable without using truck routes. This route presents some concern due to the vehicle shape and design. Again, a detailed analysis of the vehicle, similar to that undertaken for the LARC, would be required before any support for the route could be given to the MCC.

Amphibious Tour Bus Issues

Staff have reviewed a range of issues including routing, safety, noise, emissions, congestion use of bicycle routes, and use of Vanier Park. Many of the issues raised during the public consultation are not under the direct jurisdiction of the City. Issues such as safety on the water come under the Coast Guard, while vehicle standards are under the jurisdiction of ICBC. This section primarily focuses on the SeaQuest proposal, although issues raised may well pertain to the other proposed services.

Routing/Safety

The vehicle width and limited speed of the SeaQuest LARC have required a thorough review of the proposed routing. The initial route proposed by SeaQuest originated at Canada Place and used the Burrard Bridge to access Vanier Park. This route was rejected due to the size and limited speed of the vehicle. A new route, shown in Appendix A, was developed based on available road width and was field tested with the Vancouver Police. The streets are considered wide enough for the vehicle to operate, although portions are designated as a bike route.

The Police considered the vehicle to be manoeuvrable and would allow a one year trial of the vehicle, although with some restrictions for use on the major streets. Access to and from the GrayLine depot would be via 2nd and 6th Avenue and is recommended to be done outside of rush hours. Both the Police and Engineering staff contacted other jurisdictions on the use of the vehicles but were unable to find documented incidents involving these vehicles on a roadway. A particular concern is the lack of driver visibility over the edge of the deck and whether pedestrians could be seen. The LARC has been retrofitted with mirrors to address this concern.

The proposed route of the LARC uses 1st Avenue and Cypress, which are designated City Bicycle Routes. Cypress is used by the majority of Tour Buses to leave Kitsilano from Greer to Cornwall and must be used to access Vanier Park. The police have indicated that the use of Cypress would require monitoring by staff. The Bicycle Advisory Committee do not support use of Cypress or 1st Avenue by the LARC.

SeaQuest have yet to finalise details on a pick up/drop off location. Options possible are use of a private parking lot at 2nd and Fir, installation or use of another private lot in the area, and installation of an on-street Tour Bus Zone (although this would remove some unregulated parking places).

Congestion

Although noticeable due to the vehicle appearance, the impact of one additional vehicle with a frequency of approximately 1½ hours (6 trips) would be relatively minor.

Noise

Jurisdiction for noise comes under the Motor Vehicle Act which requires that the muffler system be in good condition. Idling noise of the LARC was measured to be approximately 72 dBa, around 10dBa lower than, for example, a low floor diesel bus or truck. The noise level can rise to 92 dBa under maximum acceleration (similar to a normal acceleration of a diesel transit bus).

It should be noted that LARC design has a higher noise level inside the vehicle due to the hull shape and metal decking. Staff would recommend that noise dampening be added to reduce on-vehicle noise, which would enable easier communication on board.

Emissions

Jurisdiction over emissions comes under the Motor Vehicle Act and the AirCare program. The requirement is that the engine be in good condition and meet standards for when it was manufactured. The visible emissions of the LARC in the test runs have been high, and although subjective, most observers have considered them unacceptable. The engine in the test vehicle is older and in need of replacement. SeaQuest have indicated that they will be replacing the engine, which should reduce emissions. Staff would recommend that SeaQuest commit to emission reduction strategies prior to approval of the route.

The Hydroterra is also powered by a diesel engine although of a more modern design with lower emissions. The DUKW is powered by a gasoline V8 engine; however, the Coast Guard would eventually require use of a diesel engine.

Vanier Park Boat Ramp

As indicated earlier, Vanier Park contains the only public boat ramp in the City, a two boat launch with public pay parking. The Vanier Park boat ramp and access road are administrated by the Vancouver Park Board. Park Board staff have approved use of the ramp for a one year trial, with a set of conditions, a requirement to obtain other permits/licences, and a fee for each use.

All companies have expressed an interest in supporting the construction of another boat ramp within the City. At present it is not clear that a suitable location can be found, however; a study is recommended to review other options for both a temporary and / or permanent boat ramp. It is recommended that the City provide $10,000 toward this study with an equal amount provided by each of the Amphibious Tour Bus operators.

Vanier Park Institutions

A number of civic and cultural institutions are located in Vanier Park including the Vancouver Museum, H.R. MacMillan Space Centre, Vancouver Academy of Music, City Archives and Burrard Civic Marina, as well as seasonal cultural uses such as Bard on the Beach and the Children's Festival.

The cultural institutions have expressed concern regarding the proposed amphibious bus tours. Their primary concerns are with respect to safety and neighbourhood impacts. There are no sidewalks along the boat launch access road between Chestnut Street and the water. The road is shared by vehicles, pedestrians, including children accessing the MusicAcademy, patrons parking in the Space Centre/Museum parking lot and crossing to the Academy, and by cyclists and joggers. The institutions are concerned that oversized vehicles will add to the existing concerns.

Staff are also concerned about potential conflicts between the proposed amphibious bus traffic and children during the annual Children's Festival. While the festival site is fenced, many families walk to the site across and along the access road.

SeaQuest have indicated a longer term plan to add evening service in the summer. Bard on the Beach operates June through September with both matinee (1pm and 4pm) and evening (7pm and 8pm) performances. While the outdoor venue already copes with ambient noise from the bridge and water, they are concerned about additional noise impacts especially in the evening when sound carries over water.

Staff would recommend, should Council approve the Amphibious Bus Tour route, that SeaQuest Adventures be requested to restrict operations during the Children's Festival, and that the hours of operations be limited to 10am to 5pm.

Public Consultation

Good Neighbour Agreement

The existing Good Neighbour Agreement, signed in September 2000, seeks an amicable relationship between the KPRA and GrayLine and Vancouver Trolley. Only GrayLine and Vancouver Trolley are bound by this agreement and so SeaQuest and the other companies did not directly approach the KPRA about the services. The agreement does not specifically refer to new services; however, the KPRA have felt strongly that the agreement should apply to any new service. It is recommended that any new operations should be required to sign the Good Neighbour Agreement.

City Survey/Open House

An Open House was held on February 16, 2002, and a survey was conducted to gauge reaction to these proposals (see Appendix E). Notices were sent out to inform residents along the route and within one half block of the route.

Results to date have indicated a strong lack of support for the Amphibious Bus Tours in Kitsilano Point and along most of the SeaQuest route. Issues have also been raised over the suitability of Amphibious Tours in general.

262 responses have been received to the survey, of which 9 are supportive of the services and a one year trial. Building Strata's on Greer, 2nd, Lamey's Mill and Cypress have provided petitions objecting to the services. Much of the focus has been on the SeaQuest LARC,although many of the negative comments apply to Amphibious Tours in general (see Appendix E).

Other Stakeholders

The Vancouver Board of Trade has contacted the City expressing support for the SeaQuest proposal indicating the unique nature of the service and importance of tourism to the City (see Appendix F).

CONCLUSION

City staff have reviewed three proposals for the operation of Amphibious Bus Tours that would use the boat ramps at Vanier Park. At present, one proposal, by SeaQuest Adventure Tours, is ready for implementation and is awaiting a decision by the Motor Carrier Commission. These unusual vehicles raise issues of congestion, noise, emissions, perceived safety and resident acceptability.

After review of several options by Police and Engineering staff, a route has been developed for the SeaQuest LARC that tries to minimize the impacts. Some impacts on the residential communities would remain. Since the SeaQuest vehicle has ICBC and Coast Guard approval and Park Board staff have approved a trial use of the only public boat ramp in Vancouver, a one year trial of the route is put forward for consideration, subject to conditions as discussed above.

* * * * *

NOTE FROM CLERK: Appendices A-G are not available in electronic form - on file in the Office of the City Clerk.

Appendix A. Route Map

Appendix B. Ride the Ducks Proposal

Appendix C. Vancouver Duck Tours

Appendix D. Letter & Survey

Appendix E. Public Feedback

Appendix F. Board of Trade Letter

Appendix G. Seaquest (1993) Adventurecraft Inc. Proposal

 

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