SUPPORTS ITEMS NO. 2
P&E COMMITTEE AGENDA
OCTOBER 26, 1995
POLICY REPORT
Urban Structure
Date: Oct. 10, 1995
Dept. File No. TS
TO: Standing Committee on Planning and Environment
FROM: Director of City Plans, General Manager of Engineering
Services, and the Director of Environmental Health in
consultation with the Director of Economic Development
SUBJECT: Vancouver International Airport Draft Master Plan
RECOMMENDATIONS
A. THAT Council recognize the economic importance of the airport and
support expansion of airport facilities as described in the draft
Master Plan subject to the final plan incorporating the following
changes:
a) the Aeronautical Noise Management section should clearly state
the Airport Authority's commitment to strictly enforce
operational restrictions on the use of the parallel runway to
minimize noise impacts in Vancouver (primarily used for
landings, no Stage 2 take-offs, no use 22:00 to 07:00,
quietest configuration);
b) commercial land use north of the parallel runway should be
limited to the minimum required for a safety buffer;
c) the Airport Authority should develop design guidelines for the
Airport North area in consultation with nearby residents, park
users, and wildlife area managers with a view to minimizing
impacts on these uses and maximizing visual screening;
d) the design guidelines the Airport Authority proposes to
develop for all airport buildings should include provisions to
maximize the opportunity for workers and customers to walk,
bike, and use public transportation for access; and
e) Transportation Demand Management programs for all users of the
airport should be strongly supported.
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B. THAT Council request that:
a) the Airport Authority encourage B.C. Transit to introduce a
direct downtown-airport bus route;
b) B.C. Transit examine a direct peak period express bus route
from Richmond to downtown Vancouver using the Number Two Road
Bridge to accommodate commuters crossing Sea Island and the
Arthur Laing Bridge;
c) B.C. Transit examine means of providing improved service for
airport employees; and
d) the requirements, implications, and possible cost sharing for
a high priority vehicle lane between the airport and the port
be considered in the context of transit improvements in the
Granville corridor.
GENERAL MANAGERS' COMMENTS
The General Managers of Community Services and Engineering Services
recommend approval of A and B.
COUNCIL POLICY
In March 1988 Council approved The Southlands Plan which included two
relevant policies: noise and other negative impacts resulting from the
Vancouver International Airport should be minimized and development and
activities on the northern part of Sea Island should be compatible with
the tranquil, semi-rural character of Southlands and recognize the
importance of the area in the ecosystem of the Fraser River estuary.
In January 1991 Council supported development of the parallel runway
subject to:
o mitigation of substantive impacts raised in intervener briefs
filed by Vancouver groups;
o all capital costs being paid by the federal government or from
airport revenues;
o implementation of the Environmental Assessment Panel
recommendations;
o improvements in noise monitoring and strict enforcement of
policies to restrict operational noise;
o improved transit access for employees and passengers.
In February 1992, Council supported a report outlining the Assessment
Panel's recommendations but requesting clarification and further
information on the recommendation to compensate property owners
experiencing increased noise levels (compensation was subsequently
rejected by the federal government).
In October 1994 Council supported an initiative to restart negotiations
on an agreement to allow unrestricted air passenger and freight access
between Canadian and U.S. cities.
Council has also opposed additional access to Sea Island which could
increase auto commuter traffic on the Laing Bridge in response to the
Dover Crossing (1992) and Richmond City Centre (1995) Official Community
Plans.
PURPOSE
The Vancouver International Airport Authority has prepared a draft
Master Plan which accommodates the substantial air passenger and freight
growth which it anticipates will occur in the next twenty years. This
report provides a recommended response to those aspects of the draft
plan which have an impact on the City of Vancouver and its residents.
SUMMARY
The recommended response to the draft Master Plan is based on a review
of the document relative to existing City policy and the recommendations
of the Environment Assessment Panel which reviewed the parallel runway
proposal. Two elements of the draft plan continue to raise public
concern:
o Future noise impacts associated with the parallel runway are
acceptable only if there are operating procedures which would limit
the runway's use to quieter operations and aircraft. The Master
Plan does not seem to have fully endorsed these procedures.
o The Assessment Panel recommended all of the area to the north of
the parallel runway be reserved as a conservation area. In the
Master Plan about half of this area is slated for airport-related
development in the medium to long term.
In addition, the forecast increase in airport passengers, freight, and
employment have generated recommendations to encourage non-auto travel
to and on Sea Island including:
o design guidelines on all new facilities which maximize the ability
of all airport users to walk, cycle, and take public transit;
o improved B.C. Transit bus service to and across Sea Island;
o more emphasis on Transportation Demand Management policies in the
Master Plan.
BACKGROUND
The proposal to construct a parallel runway has been a regional issue
since the early 1970s. In 1989 a federal Environmental Review Panel was
asked to conduct a public review of the environmental and socio-economic
effects associated with the parallel runway proposal and consider
mitigating and compensating actions which could reduce negative impacts.
The City of Vancouver supported the Panel's recommendations. When the
federal government approved the runway in 1992, it agreed to most, but
not all, of the Panel's recommendations.
In 1992 the administration of the airport passed from Transport Canada
to the Vancouver International Airport Authority (the Authority), a not-
for-profit corporation which leases 1340 hectares of Sea Island from
Transport Canada. The Authority is responsible for the planning and
development of the airport.
The parallel runway provides a major increase in airport capacity; the
draft Master Plan is oriented towards accommodating future growth. The
draft Master Plan has been received by the Authority's Board and
distributed for comment prior to final adoption. The Authority hosted
five public meetings on the draft plan in various locations across the
region; about fifty people attended the Vancouver meeting held in the
Main Library on the evening of September 20.
THE DRAFT MASTER PLAN
The draft Master Plan (on file) contains over 300 pages. It contains
information and forecasts on passengers, air freight, landings and other
items which need to be accommodated at the airport. Each section
contains information on existing facilities, projected needs, and
proposals to accommodate those needs.
The draft Master Plan emphasizes the importance of the airport to the
economy of the region and the province. The airport provides about $600
million in direct wages and produces about $1.6 billion in services.
The Authority's vision is to enhance this economic role by making the
airport a premier intercontinental and North American gateway,
destination, and intermodal freight distribution centre.
Table 1: Existing and Forecast Airport Indicators
Passengers Freight Employees
(millions) (tonnes) (full time equiv.)
1994 10.2 180,000 15,000
2015 21.8 450,000 20,900
Growth 11.6 270,000 5,900
Growth(%) 113% 150% 40%
The draft plan anticipates substantial growth in passengers, freight,
and employment (Table 1). The parallel runway is under construction and
scheduled to open in mid-1996. A new international terminal, control
tower, and parking garage are also nearing completion. Additional major
facilities and reserve areas identified to accommodate this growth
include:
- New aprons around terminals, additional taxiways, and an extension
of the existing runway by 300 metres to handle new large aircraft.
- Additions to the existing main terminal and to the nearly complete
international terminal (including a hotel) plus a new airport south
terminal for planes with less than 50 seats. A terminal reserve
area is also established to the east of the international terminal.
- 20 hectares for future air freight facilities located between the
existing terminal and Burkville (assumes a moderate increase in
freight handling efficiency). Land is also reserved at the eastern
end of airport north for freight handling in case freight growth
rates exceed projections.
- Redevelopment of lands in airport centre for airport maintenance,
aircraft maintenance, flight kitchens, and other aviation support
activities.
Additional provisions in the draft plan which are located close to
Vancouver include (general map in Appendix A):
- A general business park is proposed for firms which would benefit
from the visibility offered by the main commuter route across Sea
Island. It could have about 3,000,000 square feet of floorspace
spread over about 150 acres.
- Additional storage capacity in the "fuel farm" north of the
parallel runway.
- A Sea Island Conservation area on the north side of Sea Island.
- Dyke trails for pedestrian, biking, and equestrian use on the
north, east, and south sides of Sea Island.
Many components of the draft Master Plan do not have negative impacts on
the City of Vancouver or its residents. A few elements of the draft
plan are not congruent with existing Council policy. Three items are
raised in this report for Council information and consideration:
1. Noise and Other Environmental Concerns
2. Land Use to the north of the parallel runway
3. Transportation Issues
1. NOISE AND OTHER ENVIRONMENTAL CONCERNS
The primary environmental issue raised by Council in the past is noise.
The Assessment Panel focused on noise issues but also made
recommendations on the loss of bird habitat (discussed in 2 below) and
fish habitat/water quality. This section of the report recommends a
change to the draft Master Plan related to noise from aircraft movements
and provides information on other noise and fish habitat/water quality
issues.
Noise
Noise impacts are subjective, difficult to predict, and controversial.
Increased noise levels arising from the operation of the parallel runway
were a major issue prior to federal approval of the parallel runway.
The parallel runway is now nearing completion. It will bring take-offs
and landings about a mile closer to the residents of Southlands, the
Southwest Marine Drive area, and Marpole. Environmental Health has
already begun to receive phone calls concerned about increased noise
when the runway opens (scheduled for Autumn 1996). Staff anticipate
that even if measured noise levels do not rise, noise complaints will
increase because residents will consider the combination of increased
visibility and existing noise levels to be more disruptive than the
current situation.
The Airport Authority forecasts that actual noise levels in south
Vancouver will improve slightly in the medium term if operating
restrictions are placed on the use of the parallel runway. However, the
draft Master Plan's treatment of this key issue is not clear.
Some background is required to appreciate the importance of operating
procedures on noise levels in southwest Vancouver. The two sources of
airport noise that generate complaints from city residents are: aircraft
movements and engine runups.
Aircraft Movements: Aircraft are classified according to how much noise
they generate. Stage 2 planes are substantially noisier on take-off and
generally somewhat noisier when landing than Stage 3 planes. Vancouver
currently has about 46 percent of take-offs and landings made by Stage 2
aircraft. This is a high proportion relative to other major airports
and it produces a large noise "footprint."
A stage 2 plane taking-off from the existing runway is expected to
generate more noise in South Vancouver than a Stage 3 plane landing on
the parallel runway. Canadian regulations require that Stage 2 aircraft
be phased out by 2002. As a result, the area of Vancouver covered by
the noise contour in which CMHC guidelines advise some residential uses
incorporate noise attenuation is forecast to be little different in 1998
than it was in 1994. If the forecasts are accurate, by 2015 the area of
the city within this contour will be smaller than in 1994. (Maps in
Appendix B)
However, until the Stage 2 aircraft are gone, the size of the sound
footprint in southwest Vancouver is heavily dependent on whether or not
Stage 2 aircraft take-off from the parallel runway. Airport staff and
the 1994 Noise Management Committee report make it clear that the
Authority intends to abide by the Assessment Panel's recommendation (as
modified during federal approval) that the parallel runway not be used
for the Stage 2 take-offs, be operated primarily for landings with
aircraft using their least noisy procedures, and be used only between 7
am and 10 pm. The draft Master Plan lists these conditions as
"assumptions" underlying its noise forecasts but it does not clearly
indicate the Authority's commitment to these restrictions.
Given the sensitivity of the community to noise, it is recommended that
the Aeronautical Noise Management section of the Master Plan make it
very clear that the Airport Authority is formally committed to these
restrictions. It is also recommended that this section include a
commitment to strictly enforce these procedures in line with past
Council policy.
Runups: A runup is the acceleration of an engine to high output. They
occur either when an aircraft begins its take-off or as a test following
engine maintenance.
Maintenance runups generated 73 complaints, about a quarter of the total
noise complaints received by the airport in 1994. Runup complaints are
heavily concentrated in southwest Vancouver. Airport staff indicate
they arise primarily from late night runups under weather conditions
which carry the sound from the runup area near the southeast corner of
the airport to southwest Vancouver. The Authority could be asked to re-
examine other runup areas which could be used under weather conditions
that now generate complaints in South Vancouver.
Other Noise Recommendations: The remaining Council and Assessment Panel
recommendations relate to noise monitoring committee roles and
membership, better aircraft tracking systems to identify aircraft not
abiding by operating restrictions, additional noise monitoring stations
in adjacent communities, measuring and forecasting noise levels, and
surveys of the impact of noise. These recommendations were generally
accepted by Transport Canada. The report of the Noise Monitoring
Committee shows the Airport Authority is moving toward implementation of
these Assessment Panel recommendations.
Fish Habitat and Water Quality
Fish habitat and water quality recommendations made by the Assessment
Panel related to spill containment and recovery improvements being
operational before the parallel runway is commissioned and to reaching
agreement about opening the McDonald Slough causeway to improve water
quality in the slough. The Environmental Health staff member who sits
on the airport's Environment Committee reports that the Airport
Authority has been very concerned about protecting the environment. The
spill containment system will be in place when the runway opens.
Studies are also underway to ensure that breaching the causeway is the
best approach to improving water quality in McDonald Slough.
2. LAND USE TO THE NORTH OF THE PARALLEL RUNWAY
The Environmental Assessment Panel considered north Sea Island to be a
key component in the Fraser estuary's bird habitat. As a result it
recommended that the area north of the parallel runway be set aside as
the Sea Island Conservation Area and dedicated to the conservation and
enhancement of wildlife uses for fifty years.
Transport Canada did not fully accept this recommendation because of the
need to protect aircraft from bird strikes. When the parallel runway
was approved, 140 hectares were set aside in perpetuity for conservation
and public use. About 130 hectares were reserved to act as a safety
buffer between the conservation area and the runway; commercial uses
would be permitted in the buffer. The draft Master Plan reaffirms this
arrangement by designating the area between the runway and the
conservation area as a long-term reserve for airport commercial and air
freight uses.
The draft plan is in conflict with the Assessment Panel recommendation.
There are two issues: the technical basis for the size of the buffer and
the impact of development within the buffer on adjacent areas.
The Technical Basis for the Buffer
The Assessment Panel called for an independent, public review of
Transport Canada's bird strike prevention program. A Transport Canada
led study is underway and scheduled to be available for public review
and comment in December 1995. This and other studies on the value of a
developed strip as buffer should be reviewed by the Airport Authority's
Environmental Monitoring and Implementation Committee to determine the
minimum buffer required for aircraft safety. If a narrower buffer is
safe, the Master Plan should be modified to reduce impact on adjacent
areas. If the studies confirm the boundaries in the draft Master Plan,
a public process would serve a public education role. Given the long-
term nature of the uses the draft plan proposes in the buffer, a public
review and reduced buffer area would not likely restrict airport growth.
Visual Impact of Buffer Development
The parallel runway and any development in the buffer will be
substantially closer than existing airport facilities to regional parks,
the Sea Island Conservation area, parks and dyke trails in the City of
Vancouver, and the Southlands residential neighbourhood. Concerns were
expressed at the public meeting about the impact of new buildings on the
tranquillity and rural outlook from nearby public areas and Southlands
homes. As a result, it is recommended that Airport Authority establish
a committee made-up of nearby residents, conservation area managers, and
park users to develop design guidelines to minimize the impact of buffer
development on adjacent uses. The guidelines should also apply to the
general business park proposed for the land between the end of the
runway and the Laing Bridge.
Other Design Guidelines
The Airport Authority intends to develop design guidelines which would
apply to all new buildings constructed on land it controls. It is
recommended that the guidelines ensure new development north of the
parallel runway and elsewhere on Sea Island maximize the opportunity for
workers and other airport users to use non-auto modes for trips to and
on the island. Possible design features include easy access to
entrances from adjacent streets, the provision of sidewalks, bike
storage and end of trip facilities, transit friendly subdivision
designs, etc. This emphasis would be in keeping with transportation
priorities in CityPlan and the Livable Region Strategic Plan.
3. TRANSPORTATION ISSUES
The airport already generates a significant number of trips. The Master
Plan anticipates substantial growth in airport activities between 1994
and 2015: the number of passengers will double and the volume of air
freight will expand by 150%. The number of employees on Sea Island will
grow more slowly but still increase by 40% over the period. This growth
will lead to a substantial increases in the annual number of trips to
and from Sea Island.
The Master Plan responds to this increase by expanding road capacity on
Sea Island, adding bikeways on major roads, improving end of trip
facilities for cyclists at main passenger terminals, reserving a right
of way for rapid transit, and proposing a new transportation interchange
near the south end of the Laing Bridge. Although these Master Plan
proposals will handle the anticipated growth in trips on Sea Island,
accommodating more trips to the City is not addressed in the draft plan.
Currently about 45% of airport passengers go to or come from Vancouver.
This reflects the important regional role of the city for tourist and
business travellers. As the region grows and the airport serves more of
a gateway role, Vancouver's share of airport passengers is expected to
decline to about 41% in 2015. Given anticipated passenger growth, there
would be an average of about 12,000 trips to Vancouver each day in 2015,
an increase of 6,000 over the current average.
The Laing Bridge is a critical regulator of commuter and airport traffic
entering the City of Vancouver. Council policy does not support and the
Master Plan does not advocate altering the bridge. Rush hour traffic,
especially on the off-ramp connecting to Granville, is now approaching
capacity. Consequently, peak period traffic conditions through
Vancouver should not change.
Peak times for airport arrivals and departures do not coincide with peak
commuter flows. As airport passenger volumes increase, traffic levels
on the Laing Bridge in off-peak periods will grow. The higher the share
of these trips made by public or private transit, the lower the number
of vehicles which need to be accommodated on Vancouver streets.
Transit
The Master Plan reserves a light rapid transit corridor from the Moray
Bridge area to the main passenger terminal. It also strongly supports a
rapid transit route linking Richmond and Downtown Vancouver.
It is important to plan for an eventual LRT connection, but recent
provincial announcements have indicated the Vancouver-Coquitlam Centre
line will be built by 2005, followed by the Lougheed Mall-New
Westminster segment by 2008. Richmond-Vancouver is currently the third
priority and would not be available until near the end of the Master
Plan period. It is, therefore, important to explore other transit
improvements in the short-term.
Transit will need to play a significant role in meeting the increasing
demand for trips on the Laing Bridge by providing better service for
three types of trips: airport passenger trips to and from Vancouver,
commuter trips between Richmond and Vancouver, and work trips for
airport employees.
Passenger Trips: Private buses currently provide frequent links between
downtown hotels and the airport's main terminal for a one way fare of
nine dollars. These buses will pick up passengers at Twelfth and Forty-
first. Downtown-airport service on B.C. Transit currently requires a
transfer at 70th and Granville. It is recommended that the Airport
Authority encourage B.C. Transit to establish a direct downtown-airport
route which would provide easier transit connections to a large area of
Vancouver and serve lower budget travellers.
Commuter Trips: The Master Plan states that during the morning peak 70%
of the vehicles on Russ Baker Way are Richmond-Vancouver commuters.
Richmond's existing Vancouver oriented transit routes focus on Richmond
Town Centre and the Sexsmith park and ride exchange before crossing the
Oak Street Bridge. The new Number Two Road Bridge has no transit routes
even though it offers the most direct connection between the eastern
portion of Richmond and downtown Vancouver. City and Richmond staff
believe a direct Number Two/Laing route could attract auto commuters to
transit. It is recommended that B.C. Transit explore this direct
connection, particularly when planning the Richmond-Vancouver fastbus
option.
Work Trips: The current mode split to the airport in the morning peak
period is four percent which is comparable to the level in remote
industrial areas. The 24 hour staffing of many airport operations makes
scheduling difficult. Improved Vancouver-Richmond and downtown-airport
connections could serve some Sea Island employees. It also is
recommended that B.C. Transit explore improvements, including customized
travel options, for numerous airport employees who live near the
airport.
Transportation Demand Management
A second approach to accommodating more trips to Sea Island without a
corresponding increase in vehicles on the Laing Bridge is to divert
trips to other modes using incentives and penalties. The Master Plan
contains a section on this type of transportation demand management.
Two initiatives are described. First, high Priority Vehicle (HPV) lanes
on Sea Island which would provide priority access to some regional
roadways and bridges for commercial vehicles (trucks, couriers, taxis,
and commercial buses), transit vehicles, and multiple occupant vehicles.
Second, some possible transportation demand incentives and disincentives
are listed.
These are important options. Vancouver's experience shows that these
measures are controversial but critical components of a transportation
strategy. They must be consistently pursued over a long time period. It
is recommended that TDM measures be strongly supported in the final
Master Plan document.
Airport-Port High Priority Vehicle Lane
The Master Plan calls for a high priority vehicle lane between the
airport and port including priority service for airport-cruise ship
passengers. The changes required for this service have not been
detailed but it could involve removal of parking from Granville during
off-peak periods. This may conflict with neighbourhood objectives, such
as fostering local businesses or neighbourhood centres in Marpole and
lower Granville.
It is recommended that the requirements, implications, and possible cost
sharing for a high priority vehicle lane be considered in the broader
context of transit improvements in the Granville corridor.
Road Related Proposals
The draft Master Plan also recommends road expansion on Sea Island and
Moray Bridge improvements which would have a negligible impact on
Vancouver.
New internal roads are proposed to separate airport traffic from
Richmond-Vancouver commuter trips crossing Sea Island, to improve
linkages between airport facilities, and to serve new commercial
development adjacent to the commuter route. These new and expanded
airport roads will not have a discernable impact on the City of
Vancouver.
The existing Moray Channel crossing is a two lane swing bridge which
connects Bridgeport Road to Sea Island. The draft Master Plan calls for
a phased improvement of this crossing to provide additional capacity
which is not interrupted by river traffic. The draft plan considers
improved connections from the Moray Channel Bridge to Highway 99 as an
important link to the U.S. border and the rapidly expanding eastern
section of the region for employees, passengers, and goods.
City staff expect the Moray Channel Bridge improvements to attract some
vehicles from the south and east which now cross onto the Burrard
Peninsula, use Marine Way/Marine Drive, and cross the Laing Bridge to
the airport. This improvement can be supported because the proposed
design limits auto commuter access to Vancouver across the Laing Bridge
(consistent with Council's response to the Richmond City Centre Plan).
CONCLUSION
The airport is an important component of the Greater Vancouver economy.
The draft Master Plan provides a land use plan which accommodates
anticipated growth in airport passengers, freight, and employees. Most
of the provisions in the draft plan do not have a direct impact on the
City of Vancouver and its residents.
It is recommended that Council support the draft plan subject to a
clearer Airport Authority commitment to operating procedures which
minimize airport noise in southwest Vancouver, additional public review
of and design guideline development for the buffer between the parallel
runway and the conservation area, increased commitment to traffic demand
management measures, and support for various proposals to increase
public transit use to and on Sea Island.
The items raised by in this report are more changes in emphasis than
fundamental changes in direction for the Master Plan.
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