SUPPORTS ITEM NO. 3
T&T COMMITTEE AGENDA
JULY 8, 1997
ADMINISTRATIVE REPORT
Date: June 20, 1997
CC File: 5757
TO: Standing Committee on Transportation and Traffic
FROM: General Manager of Engineering Services, in consultation with
the Director of Central Area Planning
SUBJECT: Keefer Triangle Improvements
RECOMMENDATION
A. THAT the improvements of the Keefer Triangle, as described in
this report and as generally illustrated in Figure 1, be
approved.
CONSIDERATION
B. THAT the improvements include a two-tree median on Columbia
Street, at an additional cost of $60,000, to be funded from
Streets Basic Capital Unappropriated Account No.
12/31/9805/999 - Transit and Arterial Streets; OR
C. THAT the improvements not include a median on Columbia Street.
COMMENTS OF THE GENERAL MANAGER OF ENGINEERING SERVICES
The General Manager of Engineering Services RECOMMENDS A and C.
There are traffic concerns with a median on Columbia but, more
importantly, the street would be the likely route for the Downtown
Heritage Railway. Any investment in a median may be lost within
five years with the development of a rail trolley service in this
corridor.
COUNCIL POLICY
City Council approved CityPlan in June 1995, including a policy that
establishes priority for walking, cycling, and transit ahead of cars.
The intent of the zoning for Chinatown (HA-1 And HA-1A), which controls
the use of land around the triangle, is to encourage the preservation of
significant early buildings and to recognize the need to accept new
activities in a contextual way.
PURPOSE
The purpose of this report is to seek design approval and funding
consideration for a portion of Keefer Street in Chinatown to create an
urban square while restoring vehicular access in proximity to properties
fronting on the north side of the street, east of Columbia Street.
BACKGROUND
In June, 1993, City Council approved the terms of a business
arrangement with the Ministry of Housing, Lands, and Parks, and the
Chinatown Merchants Association Parking Association, whereby the Murrin
Site Parkade would be built and the City would divert Keefer Street to
its present alignment. The street improvements in the vicinity of the
Keefer/Quebec-Columbia intersection were authorized to a maximum cost of
$400,000. Improvement of the residual portion of street was to be
undertaken after consultation with the community. A sod surface was
placed in the interim, around the time of the Parkade opening in May
1995. Consultations were lengthy, and a compromise was ultimately
reached as City staff agreed to support some form of vehicular
connection through the Triangle on the basis that it would not be of
typical roadway design. A working group of CHAPC, CMA, and City staff
developed criteria for the Triangle that led to terms of reference for
hiring a design consultant. Since March of this year, the consultant
team of David Mah, Lewis Villegas, and Fred Liu have worked with the
Chinatown community and staff to develop a design proposal for the
Keefer Triangle.
DISCUSSION
The proposed design for the Keefer Triangle is illustrated in Figure 1
(Appendix A). It has been developed to fulfil a number of objectives.
These are described below.
Harmonize with its setting in Chinatown - The fundamental principle
guiding the design is the positioning of a double row of Chinese tulip
trees 7.1 m apart to align with existing trees which frame the entrance
to Dr. Sun Yat-Sen Park. The square would use materials prevalent in
Chinatown, or which are complementary. Twelve new trees are proposed
(boulevard trees would be in addition), and the three existing cherry
trees would be transplanted elsewhere if possible.
Reintroduce vehicular movement adjacent to properties abutting on the
north - A four metre roadway would be demarcated on the square by
concrete bollards to permit vehicles to pass near the north-fronting
properties. Due to the narrow width, the link would be one-way
westbound and stopping would be prohibited. Traffic would have to turn
right at Columbia.
Integrate with the surroundings to create an urban square - The square
will be a highly visible space for the public to pause, gather, or
simply pass through en route to or from the principal destinations of
Chinatown, and will form an aesthetic foreground for the Dr. Sun Yat-Sen
Park, the new Museum of the Chinese Cultural Centre, the CMA Parkade,
and, ultimately, future development along the north side of Keefer.
Create a pedestrian-friendly public open space - As the proposed trees
are deciduous, they will provide relief from the heat in summer while
permitting light to penetrate in winter. The trees will be pruned
upward to ensure comfortable clearance for pedestrians. Opportunities
will exist for future enhancements or activities that would be of
interest and benefit to pedestrians (see below). Higher amenity, more
visible crosswalks would be installed at the intersection of Keefer and
Quebec/Columbia. Two additional crosswalks, one at either end of the
new vehicular link, crossing Keefer and Columbia, were also considered;
these are not recommended, however, due to safety concerns.
Permit limited interim vehicular access to abutting properties - Access
to the repair garage and the adjacent surface parking lot would be
provided on an interim basis by strategic deletion of bollards. When
redevelopment of the abutting sites occurs, the owners are aware that
access would occur from the lane that lies to the north, or, if lane
access is not possible, from Columbia.
Allow an opportunity for tour bus passenger loading - A lay-by would be
provided along existing Keefer Street to accommodate the pick-up and
drop-off activity of a tour bus.
Not worsen traffic on Keefer nor congest the CMA Parkade - The design
should improve traffic movement on Keefer in the vicinity of the parkade
entrance. The new link allows a bypass opportunity, should traffic on
Keefer get clogged. In addition, left turns from eastbound Keefer to
the new roadway link would be prohibited.
Address concerns of undesirable activities and security - Principles of
crime prevention through environmental design will be followed. The
space would be well-lit by lights within the bollards and supplementary
fixtures. The new link would provide additional supervision, already
good due to the openness of the site. Any potential street furniture on
the site would be designed to prevent sleeping. A potential tourism
kiosk (see below) would provide additional security by having an
attendant on-site.
Allow flexibility for adding features and hosting a variety of
activities - The design of the square is amenable to incorporating a
number of features, including a tourist kiosk, commemorative monument,
work of public art, decorative fountain, feature signpost, etc. As
well, the layout of the tree grid allows numerous spaces for both
scheduled and unorganized activities to occur. A rain shelter or some
other weather protection is viewed as a necessity. The CMA has indicated
that it intends to hold a competition to generate a design for future
improvements.
Meet budgetary constraints and avoid excessive maintenance costs - To
the greatest extent practicable, stock building materials would be
incorporated. Not providing curbs and gutters on the new link should
further reduce costs. Removal of the grassed areas would yield a
maintenance saving. Surfaces would be designed or treated to minimize
costs for graffiti control. The best defence against vandalism, however,
is for the local community to take ownership of the square by using it.
The proposed design is estimated to cost approximately $190,000. Funds
for this work are available from the original project. Incorporation of
a median on Columbia would add $60,000 to the estimate, and
supplementary funding would be required.
Gain support of the Chinatown community, including adjoining property
owners - Through the efforts of Chinatown representatives, the
consultants, and staff, it is believed that such support is now in hand
(see below). Continued support from Chinatown and the City will be
needed to allow the square to reach its potential.
COLUMBIA MEDIAN
The consultants have proposed that a treed median be installed along
Columbia Street between Keefer and Pender. The additional trees would
help connect the new trees in the square with the existing trees framing
the Dr. Sun Yat-Sen Park portal. While the inclusion of trees in a
median would contribute to the overall scheme, the residual road width
would be sub-standard for two moving lanes in each direction, rendering
them uncomfortable and less safe for cyclists, and unusable for the tour
buses that have become more frequent in the area. Even if the curb
lanes were used for parking or stopping only, buses would not be able
to manoeuvre to or from the curb. The reduced roadway also would hinder
access to Chinatown. Accommodating the needs of buses, while
incorporating a median, requires that the sidewalks be narrowed. If a
median of a length as proposed by the consultants were built, this would
incur significant impacts to pedestrians and additional expense.
To achieve the desired connection between the trees of the Keefer
Triangle and portal forecourt, staff have designed a two-tree median on
Columbia for the half block north of Keefer Street. This would be
accomplished by relocating the curb along the Triangle eastward.
Impacts to pedestrians would be minimal; however, due to costs,
reduction in the size of the Triangle, and concerns from the CMA, the
median is submitted for consideration.
PUBLIC COMMENTS AND RESPONSE
The design of the Keefer Triangle has been a frequent discussion item on
the agenda of the Chinatown Historic Area Planning Committee. CHAPC,
City staff, and affected owners, have sought to explore design solutions
that would meet as many public and private objectives as possible, while
keeping within the allowed budget.
The consultants and staff held an open house in the Murrin Parkade mall
on May 10, 1997; approximately 100 members of the public stopped by.
There was general support for the proposal, with only a couple of people
voicing opposition to the vehicular connection. Owners of property on
the north side of the Triangle have been extensively involved in the
development of this scheme and have indicated their agreement with the
proposed design. At its meeting on May 13, 1997, CHAPC reviewed the
design that had been presented at the Open House. It agreed to support
the design, noting however, concerns with the effect the trees would
have if planted at the density proposed and were allowed to grow to
their full height. CHAPC therefore recommended that the size of the
trees be controlled through a regular pruning program.
The CMA struck a committee to review the proposed design, and expressed
concern about the potential impact a median might have, as they did not
want to lose any width from the travelling lanes. The CMA committee
also wanted the second row of trees deferred to allow increased
flexibility. A copy of their letter is included as Appendix B.
Staff and the consultants believe the design, with or without a Columbia
median, allows adequate flexibility for embellishing the site. The
previous design, with fifteen trees, was modified after consultation
with the CMA and revised to show twelve trees. Elimination of the
second row would seriously compromise the fundamental design concept.
Deferral of planting is not satisfactory, since trees would then not be
of matching size.
FUNDING AND TIMING
The original approval of the diversion of Keefer Street as part of the
Murrin Parkade agreement provided a total of $400,000 ($200,000 from
Streets Capital and $200,000 from Parking Sites Reserve). To date,
approximately $210,000 has been spent, and $190,000 remains to fund the
improvements detailed in this report. Should the median be added on
Columbia Street, an additional $60,000 would be required, from the
account set aside for modifications to transit and arterial streets.
Construction would occur in late summer to fall.
CONCLUSION AND RECOMMENDATION
A working group of Chinatown merchants, property owners, CHAPC members,
consultants, and City staff have developed a plan for treating the
Keefer Triangle. The design would create a treed, hard-surfaced, public
open square. A lay-by on Keefer Street with capacity for one tour bus,
and a four-metre, one-way, single lane vehicular connection, with
accesses to two abutting properties, would be provided. Opportunities
for future endowment of the square with further amenities would be
created. It is recommended that the City proceed with the improvements
as described in this report.
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