ADMINISTRATIVE REPORT
Date: April 8, 1997
File No. 2122-5
C.C. File No.: 5553-1
TO: Standing Committee of Council on Planning and Environment
FROM: Manager of Engineering Services, in consultation with the
Director of Central Area Planning and the Manager of Parks and
Recreation
SUBJECT: Waterfront Pedestrian/Bicycle Route Design - Bayshore
Development
RECOMMENDATION
A. THAT Council approve the revised design of the shoreline
protection works for the Bayshore development as shown in
Appendix A.
B. THAT Council approve the design of the waterfront
pedestrian/bicycle route for the Bayshore development as shown
in Appendix A.
C. THAT Council approve the design of handrails as shown in
Appendix B, along the entire length of the walkway/bicycle
path.
D. THAT Council authorize staff to obtain a right-of-way to the
satisfaction of the City Engineer, on the west side of the
Bayshore Gardens project in order to connect the
walkway/bicycle path with Stanley Park.
E. THAT Council authorize staff to obtain a 1.5m right-of-way on
the east side of the Bayshore Hotel for the bicycle
path/walkway when a development permit application is made for
the hotel.
GENERAL MANAGER S COMMENTS
The General Manager of Engineering Services recommends approval of
A through E.
COUNCIL POLICY
- On March 25, 1997, Council approved the report, Waterfront
Pedestrian/Bicycle Widths - Coal Harbour, Bayshore and False Creek
North, which revised the widths of the Bayshore pedestrian and
bicycle pathways.
- On October 24, 1991, Council approved the report, Conceptual
Shoreline Designs - Coal Harbour and False Creek North, and
requested that, with respect to the detailed design, Council only
review issues which represent changes to the approved proposals and
principles.
- On October 24, 1991, Council approved the report, Waterfront
Pedestrian/Bicycle Route Concept Plan - Bayshore, Marathon and
False Creek North Developments, and requested that staff report
back on the detailed design of the waterfront pedestrian/bicycle
system through False Creek North prior to any development permit
approval in a waterfront sub-area.
- On August 13, 1991, Council approved the rezoning of the Bayshore
Site. As a condition of rezoning, the developer is required to
design and construct shoreline protection works and a waterfront
pedestrian/bicycle pathway.
PURPOSE
This report seeks Council approval of the design of the shoreline
protection works and the pedestrian/bicycle system for the Bayshore Site
and approval of the location and design of the handrails. Council
approval is required as a condition of the issuance of development
permits for the waterfront sub-areas in the Bayshore development.
DISCUSSION
Shoreline Protection Works
Council requested a report back on detailed design for the shoreline
protection works only if the design differs significantly from the
approved proposals and principles. The design of the shoreline
protection works along Cardero Park are generally in accordance with the
design concept approved by Council. However, the design in the Marina
and Charter Boat sections has changed to accommodate staff and
Fisheries' concerns.
The approved design concept includes precast panels hung from the deck
to low water level in the Marina section and to mean tide level in the
Charter Boat section. The precast concrete panels have been replaced
with a simpler, more elegant fascia panel and the slopes above low water
level have been treated with a specially placed rock finish. To meet
Fisheries' requirements, the slope in the Charter Boat section has been
revised. As a result, the vertical distance between the deck level and
the rock slope increased from 3m to 4m.
Staff recommend approval of the revised shoreline protection works
design, as shown in Appendix A as the design meets the principles
approved by Council, the design objectives of staff and Fisheries'
requirements.
Handrails
The design of the handrail along the walkway, shown in Drawing L13 of
Appendix A, is similar to the approved Marathon handrail. The handrail
is high quality, difficult to climb and minimizes view blockage.
Staff are seeking Council's direction on the extent of handrails to be
used along the walkway. This issue involves the need to balance
aesthetic objectives against safety concerns and potential liability for
the City. Council approved, in the conceptual Shoreline Designs report
in October, 1991, "THAT shoreline handrails be kept to a minimum", so
views are not obstructed. However, the Building By-law requires all
drops over 600mm (2 feet) to have guards.
Council dealt with this issue previously when considering the shoreline
design for the False Creek North Area 2 (Roundhouse) development. In
that case, after considering a number of criteria, Council approved the
design without handrails in locations where the vertical drop was 2.35m
(almost 8 feet). On the Bayshore site the minimum drop from any point
along the proposed walkway to the rock slope is 4.0m (over 13 feet),
therefore,, the developer and Engineering staff are recommending
handrails along the entire shoreline.
Planning and Park Board staff are concerned that a handrail along the
Charter Boat section of the walkway, north of the Bayshore Hotel, will
have a significant impact on enjoyment of the northward views and will
not meet Council s intent of minimizing handrails. Planning and Park
staff would prefer the use of a planter barrier along the edge of the
deck, shown on Drawing L6 of Appendix A, to define the edge of the deck
without impacting views.
Engineering staff are concerned that the planter edge will not provide
an adequate barrier for preventing people, especially children, from
potentially falling over the edge. Therefore, this design cannot be
recommended.
Pedestrian/Bicycle Pathway
The detailed design for the Bayshore Site pedestrian/bicycle pathway,
shown in Appendix A follows the concept and standards in the 1991
Concept Plan report approved by Council and the revised pedestrian and
bicycle pathway widths approved by Council on March 25, 1997. The
surface treatment, lighting, furniture and landscaping have been
developed through a process involving input from Parks, Planning and
Engineering staff, and the developer s design team. The proposed design
balances urban design objectives and maintenance costs and provides a
safe and enjoyable experience for pedestrians and cyclists.
Marina and Charter Boat Section
The pedestrian and bicycle pathways are separated by a landscaped buffer
in the Marina section (north of Towers E & F) and the Charter Boat
section (north of the hotel). The pedestrian pathway is 5.2m wide with
a concrete paver surface. The bicycle pathway is a 4.0m wide asphalt
surface with narrow paver bands defining the edges.
In order to connect this end of the walkway to Stanley Park, a
right-of-way on the west side of the development will be required from
the developer. The size of this right-of-way will be negotiated with
the developer to the satisfaction of the City Engineer.
Marina Section West of the Hotel
The pedestrian and bicycle pathways are separated by a landscape buffer
in the Marina section west of the hotel. The pedestrian pathway is 5.2m
wide with a concrete paver surface. Bicycles share a 6.0m wide pathway
with service vehicles for the charter boats and proposed restaurant.
The pathway also provides fire fighting access for the hotel. The
bicycle/service road is a 4.0m wide asphalt surface banded by a 1.0m
wide strip of concrete pavers. The bicycle path follows the eastern
edge of the loading area at the northwest corner of the hotel in order
to minimize conflicts between bicyclists and service vehicles.
Cardero Park
The pedestrian/bicycle route is a shared pathway located between the
hotel and Cardero Park. The shared pathway design is made up of a 4.6m
wide pedestrian pathway beside the retail frontage (1.5m of which is on
the hotel site), a 0.6m separating strip and a 4.6m wide bicycle pathway
adjacent to the park. In addition, the hotel will be set back 3.0m from
the property line, providing an additional 1.5m of pedestrian area. A
3.0m wide secondary pedestrian pathway runs along the west edge of the
park beside the water. The surface treatment of the pedestrian and
bicycle pathways through Cardero Park will be concrete pavers. A 1.5m
wide right-of-way for maintenance of the walkway and public access will
be required from the property owner prior to issuance of any development
permit for the hotel site.
This design assumes that there will be retail frontage along the east
side of the hotel development. However, the developer is currently
considering development on the hotel site that does not include active
uses at grade along the eastern edge of the hotel. This is not included
in the zoning for the site and, therefore, is not being considered at
this time. Any changes to the design will be considered along with the
development permit application for the hotel. At that time, staff will
also obtain the 1.5m right-of-way from the developer.
Appendix B (drawings L1, sheets 9 and 10, and drawing L9B) shows how the
walkway would be designed if the hotel development proceeds without
retail.
Stone Caps
Stone caps will be provided along the entire walkway to provide
continuity to the entire shoreline system and to reinforce the character
of the original Stanley Park seawall.
CONCLUSION
The pedestrian/bicycle route design proposed is generally in accordance
with the concept approved by Council in 1991 and the revised pedestrian
and bicycle pathway widths approved by Council on March 11, 1997. Staff
support this proposal and request Council s approval.
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