P3
POLICY REPORT
Date: June 14, 1996
TO: Vancouver City Council
FROM: General Manager of Engineering Services
SUBJECT: Powell Street Relocation to Accommodate
the Port Roadway Connection
RECOMMENDATION
A. THAT Council approve the relocation of Powell Street to
accommodate the development of a Port Roadway connection near
the B.C. Sugar building, subject to the General Manager of
Engineering Services, the Manager of Real Estate Services and
the Director of Legal Services finalizing an agreement with
the Vancouver Port Corporation (V.P.C.), in consultation with
Canadian Pacific Railway (C.P.R.), such agreement to be
structured on the following terms:
(i) The City will design and construct the infrastructure
works on Powell Street, including: a new realigned
sewer; a new relocated watermain; new pavement, curbs,
and sidewalks; a new retaining wall along northern
street edge, removal of excess fill material, and
perform all related utility and transit relocation and
other work within the City Street area, for a firm price
of $1.8 million, to be funded by the V.P.C. If the
V.P.C. provides a dump site for excavation material
nearby, the firm price to the V.P.C. can be reduced by
$100,000. If any soil contamination is encountered
during construction, the cost to remediate would be
extra to the firm price.
B. THAT the existing Rogers Street rail crossing be closed
except for emergency purposes, following completion of
discussions with the V.P.C. and affected industries and the
new Port Roadway connection.
COUNCIL POLICY
City Council has designated the Port Roadway, east of Main Street, as
an industrial roadway, not a through commuter route. On May 28, 1996,
Council approved a motion: "That Council urge the V.P.C. to expedite
the use of the Port lands as a truck corridor."
BACKGROUND
The current lack of continuity of the Port Roadway results in Port
related trucks not being able to complete their trips within the Port
lands. This has impacts on the City street system and affects local
neighbourhoods.
In late 1995, the V.P.C. and the City began discussions on the
feasibility of relocating Powell Street in the vicinity of B.C. Sugar
to permit the development of a missing segment of the Port Roadway.
The opportunity to consider this project arose from the work B.C.
Transit was undertaking with C.P.R. to improve the efficiency and
safety of the West Coast Express transit service from Mission.
During the course of preparations for the West Coast Express, staff met
on several occasions with representatives of the V.P.C. and industries
in the area, to discuss the future of the Rogers Street Crossing. For
a number of reasons related to safety, interference with rail
operations, and poor access to Powell Street, it was desired to close
the Rogers Street Crossing. However, this could not be accomplished
without a suitable alternative route for truck access. In the
meantime, the crossing has been closed in peak hours only, with an
attendant in place, in order to accommodate the West Coast Express.
The new Port Roadway connection will provide the alternative access
route for trucks, so the Rogers Crossing will no longer be needed.
Staff propose to meet with the Port industries to confirm this course
of action; following completion of the Port Roadway and these
discussions, the crossing should be closed.
The City has long been pursuing this connection to reduce truck traffic
in the City and to improve the safety at intersections such as Rogers
Street at Powell. In order to accommodate the Port Roadway and the
C.P.R. operations, additional land area would be required and the only
potential space was on City land within Powell street.
The above process has led to the proposed project outlined in this
report.
DISCUSSION
The City is a key player in this project and must approve the Powell
Street relocation project before further decisions can be made. The
V.P.C. has entered an arrangement with C.P.R. and B.C. Transit that
requires the V.P.C. to decide to proceed by June 30, 1996. The V.P.C.
cannot make the decision unless the City commits to the works being
recommended since City street area and City commitment are essential to
undertaking the work. Staff support the 2-lane Port Roadway project,
shown schematically in Appendix "A", and recommend Council support it.
City staff have reviewed the feasibility of the Powell Street
relocation and its benefits to the City. The project is feasible and
offers major benefits to the City including the reduction of truck
traffic in several city neighbourhoods and improvements to Port
efficiency. This will be particularly beneficial to the Powell/Dundas,
Nanaimo/McGill and Hastings routes.
Land
The existing lands owned by the V.P.C. and C.P.R. are not adequate to
accommodate the new Port Roadway connection. The B.C. Sugar building
is on the class "A" heritage inventory and B.C. Sugar operates as a
viable business and cannot move. There is a spur track adjacent the
building that is functional and cannot be removed. Between that track
and the C.P.R. land, there is a narrow emergency access corridor.
C.P.R. lands accommodate four tracks including the southernmost track
which serves the West Coast Express. Powell Street abuts the rail
tracks.
There is insufficient unencumbered land at present to install even a
single useable lane that would meet railway and road standards. In
order to accommodate a one or two lane road, the tracks require
relocation. Also, C.P.R. advises and staff agree that eliminating a
track is not possible or acceptable.
Both options, for a one lane and a two lane Port Roadway, have been
evaluated. The one lane option does provide a connection, but it is
inefficient. The one lane option is not as desirable as the two lane
option which allows two-way traffic and is a viable alternative to
Powell Street for trucks. The costs for the options are not
substantially different as each involves relocation of tracks and
affected utilities on Powell Street. Based on this review, the
decision was made to only pursue the 2 lane option as it offers the
City the best truck traffic reduction benefit. Land discussions are
ongoing and the status will be reported to Council, in camera, later
today.
Powell Street Relocation
The realignment of Powell Street can be done generally within the
existing street area by shifting Powell Street southward. However, in
order to permit the C.P.R. to shift southward, a major 84" diameter
sewer needs to be relocated. In relocating the sewer and the street,
other utility relocations and adjustments are required. The V.P.C.
would be responsible for the costs of the road, sewer and other
related works. However, the V.P.C. is concerned that the price for the
work be limited as they have a tight budget. Staff have worked
diligently to prepare a reasonable estimate for the work that we
believe will be achievable and Council is asked to approve a firm price
to the V.P.C. of $1.8 million for the civil works. With the benefits
gained by the City from this project staff believe it is a reasonable
risk to take.
Schedule
If the project does proceed, all parties would like to see it
implemented as soon as possible. The City construction on the major
84" diameter sewer, however, may require the temporary closure of
Powell Street and careful consideration of the timing will need to be
given in light of the scheduled construction. Staff will report back
on the schedule once the details have been worked out.
Traffic
A concern that both the City and V.P.C. have relates to the potential
use of the new connection by commuter traffic. The V.P.C. is concerned
that car traffic will interfere with the efficiency of the Port Roadway
and is committed to ensuring the new road is for Port related truck and
visitor activity. The City, to ensure a level of control that commuter
traffic does not disrupt the use by truck and Port related traffic,
will be seeking assurances from the V.P.C. to that effect.
The proposed change to complete this segment of the Port Roadway would
permit the closure of Rogers Street to all but emergency traffic. The
street would remain as is with a locked gate to prevent traffic from
conflicting with train traffic, including the West Coast Express.
CONCLUSION
The connection of the Port Roadway to Centerm from the east has been
considered for the last 20 years. There is now an opportunity to
complete it if all parties, including the V.P.C. C.P.R., B.C. Transit
and the City can come together. City Council can commit to this
project with little or no cost to the taxpayers. Staff are prepared to
implement the civil works on City property for a firm price of $1.8
million, to be funded by the V.P.C. and recommend Council approve the
project subject to an agreement being completed with the V.P.C.
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