SUPPORTS ITEM NO. 1
T&T COMMITTEE AGENDA
MAY 6, 1997
ADMINISTRATIVE REPORT
Date: 30 April 1997
Dept. File No. 600 090
TO: Standing Committee of Transportation and Traffic
FROM: General Manager of Engineering Services
SUBJECT: Status of Lions Gate Crossing
INFORMATION
The General Manager submits this report for INFORMATION.
COUNCIL POLICY
- On September 4, 1992, Council supported the following:
"THAT there be no further significant investment to expand motor
vehicle capacity into Vancouver in terms of adding additional
capacity."
- On March 2, 1993, Council affirmed the Park Board s position and
deferred a decision on the bridge until:
- the completion of the Transport 2021 project;
- Council has considered all possible options at a meeting
convened specifically for this purpose.
- On April 12, 1994, Council approved Transport 2021, A Long Range
Transportation Plan for Greater Vancouver, which provided that:
- "land use controls be used to foster less reliance on
automobile use and promote non-powered modes and transit.
- transportation demand management be used to change the
behaviour of travellers to make better use of the existing
transportation system.
- transportation service levels be allowed to change, i.e.,
travel times could become longer.
- more transport capacity be provided."
- On March 31, 1994, Vancouver City Council approved the following
recommendations of the March 31, 1994 Standing Committee on
Planning and Environment:
"A. THAT the Ministry of Transportation and Highways (MOTH) be
advised of existing Council policies included in this report.
B. THAT the Ministry be requested to formalize a public process
to review and discuss, with City Council, the Park Board and
Vancouver residents, the Lions Gate crossing options,
including public transit, ferry and rail options, prior to a
final decision and to incorporate this feedback in their
evaluation process.
C. THAT the MOTH be requested to remove the following options
from further consideration:
1) any cross harbour corridor connecting to Main Street or
east of that location;
2) any options involving extensive filling in Burrard Inlet;
3) any options that increase peak capacity for single
occupant automobiles into downtown;
4) any options that increase the impact on Stanley Park and
the west downtown neighbourhoods and further that
measures should be developed to reduce the impact;
5) any options that create tunnel portals and traffic
conditions which significantly impact key residential
areas, the central business district, or the
waterfront/open space system of the downtown, and in
particular the Bute/Nelson tunnel.
D. THAT the option eventually adopted must include significant
improvements to pedestrian, bicycle, and transit access,
including a queue jumper for buses.
E. THAT, following the public process, further technical
analysis, and adoption of a position on Transport 2021, staff
report back to Council and the Park Board with recommendations
for a decision.
F. THAT MOTH be requested to ensure the public process to review
and discuss the options regarding the Lions Gate Crossing
recognizes and addresses the multilingual needs of our
communities.
G. THAT if toll revenues are to be considered as an option in
the funding formula, that MOTH be requested to
direct/designate a portion of the toll revenue to the
restoration and/or maintenance of Stanley Park."
- Council made specific requests at the January 20, 1996 meeting
approved the following motions:
1. "THAT public input be sought by the Ministry after the release
of the short list of Lions Gate Crossing Options.
2. THAT to support this, the Ministry of Transportation and
Highways (MOTH) be requested to prepare a discussion paper on
transit options including queue jumpers, bus or HOV lanes,
rail systems to 2021 and beyond.
3. THAT the Ministry of Transportation and Highways and the City
report back on the impact on off-peak growth from a new bridge
or tunnel, and options towards minimization of traffic impact.
4. THAT the Ministry of Transportation and Highways be requested
to work with the City and the Lions Gate Bridge Focus Group to
verify the study data prior to the public consultation
process."
- Park Board policies are included in Appendix A.
PURPOSE
This report provides information on the status of the Lions Gate
Crossing since the recent announcements by Premier Clark and Minster
Boone.
BACKGROUND
Council reviewed the status of Lions Gate Crossing in 1994 (Appendix B)
and again in 1996 (see Appendix C).
The last detailed report was submitted over a year ago and since that
time the City and other stakeholders have awaited an announcement by the
Province.
In addition, this winter, the Park Board organized a public meeting on
February 27, 1997 to discuss the issue of a tunnel through Stanley Park
to replace the causeway. The Kholn-Crippen firm presented one proposal
for the construction of a tunnel. Following the presentation, the
tunnel option was discussed by Park Commissioners and staff, the
Transportation Funding Agency and members of the public. The Park Board
reinforced their position that a tunnel under the Park is the only
acceptable option.
The Provincial Proposal
On April 16, 1997, Premier Clark announced provincial plans for the
Lions Gate Crossing, based on the following conditions:
$70 million provincial funding
a tunnel under Stanley Park favoured
possible private funding with a toll
no increased traffic flow in the West End
Minister Boone to announce details later that week
Transportation and Highways Minister Lois Boone announced details on
April 18 of the proposal for Lions Gate Crossing. The City was
represented by Councillor Chiavario at the press conference.
The provincial government will call for proposals from the private
sector for the design, construction and financing of a new Lions Gate
Crossing. The proposal preparation and subsequent evaluation will
include assistance from local governments, the Squamish Nation, the GVRD
and the Park Board.
Proposals will be required to meet the following conditions:
The new crossing is to follow the existing First Narrows alignment
from Marine Drive in North Vancouver to Georgia Street.
Four lanes of traffic, two northbound and two southbound, but with
surface traffic through Stanley Park reduced or eliminated.
No net detrimental effect on Stanley Park.
A plan to reduce traffic impacts on the West End.
The province will invest up to $70 million over five years, which
is the same amount as would be spent on rehabilitation of the
existing bridge.
Additional costs are to be financed from tolling revenues.
The potential for a tunnel under the inlet was not ruled out of the
proposal request, but it would be subject to affordability,
environmental assessment and acceptability to the Squamish Nation. This
option seems unlikely.
The press release (Appendix D) provides the background on the public
process and the numerous technical supporting reports.
Timing of this work is to issue the proposal call this summer with a
target date of January 1998 for selecting the design.
DISCUSSION
A. City position:
that crossing options reduce the impact on Stanley Park.
Provincial response: the announcement recommends a tunnel under
Stanley Park for all four lanes or for two lanes underneath two
surface lanes. This is consistent with the City position, although
a tunnel for all four lanes is strongly preferred.
B. City position:
that any corridor connecting to or east of Main Street not be
considered
Provincial response: supported by announcement
C. City position:
that options involving extensive filling in Burrard Inlet not be
considered
Provincial response: supported by announcement
D. City position:
that options that increase peak capacity for single-occupant
automobiles into downtown not be considered
Provincial response: the announcement supports a four lane option
which will not increase peak direction flows. There will be an
increase of one lane in the off-peak direction which requires
review to ensure any negative traffic impacts are addressed.
E. City position:
that options that create tunnel portals and traffic conditions
which significantly impact key residential areas, the central
business district or the waterfront/open space system of the
downtown not be considered
Provincial response: the issue of a tunnel portal is not explicitly
addressed in the announcement but with a tunnel, portal details are
important. Earlier reviews indicated that a portal in the vicinity
of Lost Lagoon could have potential impacts on the size of the
lagoon by introducing fill or new engineering works and visual
impact on the entrance to the park. As well, a portal on Georgia
Street raises additional concerns relating to the impact of
traffic, noise and fumes on adjacent residential neighbourhoods,
and the visual impacts on one of the City s most important
ceremonial streets. These concerns should be fully explored during
the proposal call and subsequent review process.
The announcement does not include any changes to the roadway system
in the central business district and promises a plan to reduce
traffic impacts in the West End.
F. City position:
the option should include significant improvements to pedestrian
and bicycle access.
Provincial response: the support for a tunnel option will provide
opportunities for an improved car-free surface route through
Stanley Park. However, there are issues that must be reviewed such
as security, especially at night, lighting, pathway design and
emergency access and incorporated into the proposal call.
G. City position:
that public input be sought after the release of the short list
Provincial response: this announcement is the provincial position
that reduces the options, however, the announcement does not
describe a public input process, and this will need clarification.
H. City position:
that the Ministry be requested to prepare a discussion paper on
transit options including queue jumpers, bus or HOV lanes, rail
systems to 2021 and beyond.
Provincial response: discussion papers on this subject, entitled
"Transit Enhancement" and "Buses and High Occupancy Vehicles" have
just been received by the Engineering Department and will be
reported on later.
I. City position:
that the Ministry and the City report back on the impact of
off-peak traffic growth from a new crossing and minimizing of
traffic impact
Provincial response: a discussion paper on this subject entitled
"Traffic Implications" has just been received by the Engineering
Department and will be reported on later.
J. City position:
that the Ministry be requested to work with the City and the Lions
Gate Bridge Focus Group to verify the study data from the "South
Shore Traffic Impact Study" prior to the public consultation
process.
Provincial response: a finalized version of the study has been
promised and is expected to be received shortly by the City and
will be discussed with the Focus Group.
CONCLUSION
Many items of concern to the City have been addressed favourably, some
issues have been studied and will be reported to Council and a third
group of issues require resolution. Specifically:
the need for an on-going public information process
the location and design of a tunnel portal at the south end of
Stanley Park, or on Georgia Street
preparation of a plan to reduce traffic impacts from the
bridge on the West End neighbourhood and the adjacent area
transit enhancements.
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APPENDIX A
- On February 15, 1993, the Park Board approved the following motion:
"THAT the Vancouver Park Board be on record as being opposed to any
expansion of the right-of-way through Stanley Park related to the proposed new Lions Gate Bridge."
- On April 11, 1994, the Park Board approved motions to advise the
Provincial Government of the following:
"THAT the Board is absolutely opposed to any Lions Gate crossing
option that would require or result in either the expansion of the
right-of-way through Stanley Park or any compromise of Lost Lagoon.
THAT the Board would favour any crossing option that would result
in the elimination of vehicular traffic through Stanley Park and a
return of the current right-of-way to Stanley Park to traditional
park use.
THAT the Board supports the use of the causeway for
bicycle/pedestrian use.
THAT the Board supports options that consider the long term
planning of transportation that would include light rail transit."
- On July 29, 1996, Park Board approved the following:
THAT the Board is absolutely opposed to any Lions Gate crossing
that would require or result in either the expansion of the
right-of-way through Stanley Park or any compromise of Lost Lagoon,
including a 4-lane surface roadway.
THAT the Board would favour any crossing option that would result
in the elimination of vehicular traffic through Stanley Park and a
return of the current right-of-way to traditional use. A bored
tunnel is the only acceptable way of achieving a widened roadway
through the park."
- On April 14, 1997, a similar motion to their July 29, 1996 motion
was approved by the Park Board.
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