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CITY OF VANCOUVER ADMINISTRATIVE REPORT |
Date: |
May 20, 2004 | |
Author: |
C. Underwood;
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Phone No.: |
6735; 7679 | |
RTS No.: |
04146 | |
CC File No.: |
5767 | |
Meeting Date: |
June 24, 2004 |
TO: |
Standing Committee on Planning and Environment |
FROM: |
General Manager of Engineering Services,
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SUBJECT: |
11th Avenue Arbutus Greenway - Temporary Measures for Trial Period. |
RECOMMENDATION
A. THAT Council approve the temporary restriction of vehicle traffic, with the exception of emergency service vehicles and specific local vehicles for special purposes as required, in the easterly portion of the 2000 block of 11th Avenue for a six month trial period; at an estimated cost of $10,000 to be provided from existing funding previously approved by Council for the completion of Arbutus West 11th Avenue Greenway.
B. THAT staff monitor traffic volumes and assess community support for a permanent greenway at this site during the trial and report back to Council with their findings.
COUNCIL POLICY
On November 19, 1992 Council approved the Arbutus Neighbourhood Policy Plan, which calls for special street treatment of Arbutus Street as the future shopping and pedestrian focus, and 11th Avenue as an extension of the greenway system.
On July 18, 1995 Council approved the Vancouver Greenways Plan. This plan supported the development of Greenways to improve walking opportunities to local connections and promote community building.
On November 7, 1995 Council established the Arbutus Neighbourhood Development Cost Levy (DCL) District and approved that 9.7 percent of levy proceeds set at $43.06 per square metre ($4.00 per square foot) be applied to street improvements.
On May 29, 1997 Council approved in principle the Arbutus Neighbourhood Greenway and Streetscape Concept Plan, and authorized the use of Community Amenity Contributions (CACs) for the development of the 11th Avenue Greenway.
Council's transportation policy places the highest priority on pedestrians.
PURPOSE
This report seeks Council's approval for a temporary restriction of vehicles, with the exception of emergency service vehicles and specific local vehicles for special purposes as may be required and as further described herein, in the 2000 block of West 11th Avenue.
BACKGROUND
The Vancouver Greenways Plan, approved by Council in 1995, includes the implementation of the 11th Avenue Greenway (the Greenway), between Vine and Maple Streets. When Council approved the Plan in 1995 the Greenway was removed from the neighbourhood greenway category and incorporated under the description of the Arbutus City Greenway since it was to be funded through contributions of the developer of sites in the Arbutus Neighbourhood.
In May 1997 Council approved in principle the Arbutus Greenway and Streetscape Concept Plan, and authorized the use of CACs for the development of the Greenway. Among other things, the Concept Plan calls for a greenway which provides public open spaces, accommodates pedestrians, and improves neighbourhood connections. The Plan is based in part, on the concept of a landscaped east-west corridor linking Lord Tennyson Elementary School at Maple Street to Kitsilano High School, Kitsilano Community Centre and Connaught Park at Vine Street. The Greenway is to incorporate walkways, large trees, low shrub planting, furnishings and special features.
The construction of the westerly portion of the 11th Avenue Greenway, between Vine and Arbutus Streets, has been completed and the Arbutus high street area is commercially tenanted. Over the last year staff completed a public process and conceptual design for the final segment of the Greenway, the 2000 block of West 11th Avenue between Arbutus to Maple Streets, linking Lord Tennyson Elementary School to Arbutus Street and the rest of the Greenway. Public consultation for the completion of the Greenway commenced in July 2003 and culminated in an Open House in February 2004. This process has been protracted since staff have been waiting for the completion of the latest development phase of the neighbourhood before beginning the final Greenway design and implementation.
A pedestrian activated signal at 11th Avenue and Arbutus Street, approved by Council on December 2, 2003, will serve to link the two segments of the Greenway and will facilitate a safe crossing for pedestrians and cyclists. The development of this crossing as part of the final phase of the Greenway contemplated a possible full or partial closure of the 2000 block of West 11th Avenue. This pedestrian activated crossing is currently being installed.
DISCUSSION
Completion of the 11th Avenue Greenway has been regarded by both Council and neighbours as an important public benefit associated with the conversion of the Arbutus Industrial Lands to residential uses at higher densities.
Public Process and Analysis
Community support for this project has been confirmed through an extensive consultation process over six years, including numerous public meetings. Commencing in July 2003, staff reconnected with the community and formed a working group comprised of interested community members. Four meetings were held with the working group to discuss the issues and challenges remaining in the design of the final phase of the Greenway. In December, 2003 a charrette was held where stakeholders, including property owners, business owners, tenants and the Principal of Lord Tennyson School, met to discuss their design objectives for the Greenway's completion. An Open House held on February 12, 2004 was attended by over 50 people. Comment received from those in attendance was overwhelmingly positive for the completion of the Greenway, and the anticipated closure of 11th Avenue at Maple Street.
A diverse group of stakeholders were involved in the above-mentioned process, including the Tennyson Elementary School Parent Advisory Committee, the Bessborough Armoury, businesses on Arbutus Street, seniors from the O=Keefe Seniors Complex, physically challenged people from Blair Court and the Vancouver Resources Society, and Bastion Developments.
The following summarizes the outcome of the public process and the results of analysis work completed by Planning and Engineering staff:
· 11th Avenue connects important neighbourhood open spaces - Connaught Park with the Kitsilano Community Centre at the western boundary to Lord Tennyson School at the eastern boundary. Both neighbours and Lord Tennyson School consider 11th Avenue the preferred east-west Greenway route, and feel that coupled with the approved pedestrian crossing at Arbutus Street, it is the most direct alignment between destination anchors and open spaces utilized by neighbours, students and those attending daycares which are also accessed from 11th Avenue.
· The Greenway links across the new Arbutus high street at the intersection of 11th Avenue and Arbutus Street, the "heart" of the locally serving shopping street and new community.
· Important characteristics of the 2000 block of 11th Avenue which should be reflected in the Greenway's design include:
_ large, mature trees which greatly contribute to the pedestrian amenity, and
_ two significant Heritage buildings, the Jones Tent and Awning building and the Bessborough Armouries. These structures present a unique opportunity to provide a visually interesting and educational environment associated with the Greenway.
· Representatives from the Bessborough Armoury and the Jones Tent and Awning building at 2025 and 2034 West 11th Avenue respectively, have noted specific interests with the design of the Greenway, primarily with respect to impacts of the closure of the block on available parking spaces and the desire to maintain vehicular access to their properties through the closed street.
· While there have been active discussions of other potential developments that may occur on Broadway between Arbutus and Maple Streets, the community has been outspoken in reaffirming that Council's commitment to complete the Greenway be respected and that the Greenway be given priority in implementation.
Preferred Conceptual Design - Two Phase Implementation
City staff, local area residents, business and property owners, and representatives of Lord Tennyson School and Bessborough Armoury have worked together to examine design options for the final segment of the Greenway. The preferred design includes a pedestrian walkway, public art, additional trees, plantings, furnishings, and special features. The preferred option also includes a closure of the 2000 block of 11th Avenue to regular vehicular traffic implemented in two phases (Appendix 1). Two phase implementation is necessary primarily because current available funds limit the amount of treatment the City can provide in the near term and the current use of the Jones Tent and Awning building located at 2034 West 11th Avenue requires vehicle loading access from 11th Avenue.
Phase 1 of the Greenway implementation involves closing 11th Avenue to regular traffic in both directions at Maple Street. This closure would extend west, along the frontage of The Maples located at 2755 Maple Street on the south side of 11th Avenue, and would extend along the flanking wall of a commercial wholesale business on the north side of 11th Avenue. The trial closure discussed herein would simulate Phase 1 of the Greenway implementation.
At a future time, when Jones Tent and Awning (a Heritage B building) chooses to pursue residential redevelopment, Phase 2 of the Greenway implementation could proceed. Phase 2 envisions a further closure of 11th Avenue being negotiated as part of an anticipated Heritage Revitalization Agreement, and involves the street closure extending further west, in front of the Jones Tent and Awning Building, with a park-like plaza located near the building's loading docks.
Phase 2 also incorporates a cul-de-sac adjacent to the parking lot entrance of the Bessborough Armoury. This cul-de-sac would be designed so that access to that site is not impeded, especially since the Armoury requires the routine movement of large vehicles into and out of their property.
Traffic Implications & Implementation Plans
The 2000 block of 11th Avenue has relatively low traffic volumes, which would be expected to increase somewhat as the area redevelops. It is anticipated that restricting vehicles from this block of 11th Avenue will not result in excessive changes in traffic volumes on adjacent streets. However, the neighbourhood plan will need to deal with this diverted traffic. The community west of Arbutus dealt with this diversion by upgrading the lane system to provide full property access. This solution is not possible east of Arbutus, where the lanes are more discontinuous. Accordingly, some traffic will be diverted to 10th Avenue, which is a recently approved bikeway. Further, development proposals for the current IGA site (at Broadway and Maple) have not yet resolved their access arrangements. However, the completion of the 11th Avenue Greenway is a long standing Council commitment, and it is recognized that typical Greenway treatments include traffic calming measures and street closures as options. Future proposals for the IGA site will need to be evaluated under scenarios with and without 11th Avenue open to traffic. Impacts on adjacent streets will be monitored over the trial closure period.
Approximately seven all day parking spaces would be lost in the trial closure. Staff have examined the parking situation in the area and have been working with the community to identify and create more short and long term parking in the neighbourhood. This includes the removal of unnecessary parking restrictions to offset this loss. Staff are committed to continue working with the neighbourhood to ameliorate any parking deficits created by the Greenway, and to protect the neighbourhood from parking overspills.
The temporary restriction of vehicle access can be accomplished with the installation of gravity barriers, removable bollards or gates, and signage providing information about the temporary restriction and plans for the completion of the Greenway. Emergency vehicular access would be provided for and keys for opening the bollards or gates would be available to Bessborough Armoury for weekly movement of military vehicles and the strata of the Maples for occasional tenant moving and special deliveries. It is anticipated that this level of access would need to be accommodated in both phases of the Greenway's implementation if the trial closure is determined successful. Staff are committed to working with the Armoury, the Maples strata, the owners of the Jones Tent and Awning building, and other stakeholders to ensure that operational challenges posed by the Greenway are surmounted.
Trial Period
After a six month trial of the temporary closure, the area will be surveyed and updated information will be considered to determine whether the Greenway closure should be made permanent. In the interim, staff will monitor changes to local traffic movement, continue to work with local area stakeholders impacted by the closure, and assess community support for a permanent Greenway treatment on this block. As well, significant local development proposals will be assessed in the context of their implications on 10th and 11th Avenues.
SUSTAINABLE IMPLICATIONS
Completion of the 11th Avenue Greenway has positive environmental implications, including:
· reducing storm water runoff from the area by removing portions of the existing asphalt hard surface and replacing it with permeable material;
· increasing the amount of vegetation on the block which serves as a local carbon sink; and
· better accommodating pedestrians in support of non-vehicular modes of transportation.
In terms of social benefits:
· engaging the public in the development of the Greenway has provided a positive opportunity for community building;
· once constructed, the Greenway will provide a welcoming pedestrian connection to Arbutus and Maple through the use of various public realm improvements, such as increased trees, public art, benches, and areas for the community to mingle and interact;
· safe, more direct access will be provided between Connaught Park and Lord Tennyson School; and
· there is social value with bridging the western and eastern halves of the area, thereby creating a more coherent and vibrant neighbourhood.
In terms of sustainable economic features, during the final stages of the project staff will investigate and pursue opportunities for involving the community in the care and maintenance of planted areas on the Greenway, which may help alleviate overall long term operating costs.
FINANCIAL IMPLICATIONS
A balance of $148,378 is available from CACs and DCLs for the completion of the 11th Avenue Greenway and related street improvements. The estimated cost of implementing and monitoring the trial closure, to be funded from the available CACs and DCLs, is approximately $10,000. Costs and funding for the permanent Greenway will be discussed in subsequent reports to Council.
CONCLUSION
The completion of the 11th Avenue Arbutus Greenway is an outstanding commitment from the 1997 Arbutus Greenway and Streetscape Concept Plan. The closure of the 2000 block of 11th Avenue will be temporary for six months, at which time staff will survey the area to determine if the closure and proposed Greenway treatment should be fully implemented. Approval for completing the 11th Avenue Greenway as detailed in this report, is recommended based on the benefits it will provide to pedestrians and is well supported by the neighbourhood community.
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