ADMINISTRATIVE REPORT
Date: 10 July 1997
Dept. File No. 4100 4102-1
CC File No. 5558
TO: Vancouver City Council
FROM: General Manager of Engineering Services
and the Director of Central Area Planning
SUBJECT: Downtown Historic Railway Alignment Options
RECOMMENDATION
A. THAT Council authorize a consultant study for the Downtown
Historic Railway Alignment Options as described in this
report.
B. THAT $56,000 be appropriated from the Stadium Parking Account
#12/31/6905/999 and $28,000 from the Streets Basic Capital
Account #12/31/9813/999 to fund the Downtown Historic Railway
Alignment Options study.
COUNCIL POLICY
Council has established modal priorities which emphasize encouraging
transit use.
* In 1995, Council directed staff to consider preserving a
transportation corridor as part of the planning process for False
Creek North and other central area developments that may be
impacted by a potential streetcar line and to report back on the
feasibility, costs and alignment options.
* In 1995, Council received the report "False Creek South Rail Line
Study" for information.
* In 1989, Council amended the False Creek North ODP to reduce
parking requirements for the Stadium by 1000 spaces. The
payments-in-lieu of parking are to be applied to the
pedestrian/bicycle/transit network improvements in the downtown
area.
* The Vancouver Transportation Plan recommends examining the
feasibility of extending the False Creek trolley to Stanley Park.
PURPOSE
This report seeks Council's approval for staff to commission a
consultant study for the Downtown Historic Railway Alignment Options.
The study will consist of two phases. The Phase I report is the
identification of potential streetcar alignments and Phase II report is
the economic analysis to determine the financial impacts and financing
options of the system. Once a preferred alignment is identified, staff
will report back to Council with the results of the study and the staff
analysis.
BACKGROUND
In February of 1994, Council instructed staff to explore options other
than the CP Rail corridor for a streetcar line in False Creek South.
Following Council's direction, route alternatives were established that
would make use of City land and existing street rights-of-way. A
consultant was retained to review alignment options and provide cost
estimates. The findings were documented in the False Creek South Rail
Line Study report which was received by Vancouver City Council. It was
noted at that time that future extensions could include connecting to
Central Broadway, Chinatown and Gastown, the Port Lands Development,
Coal Harbour and Stanley Park, BC Place Stadium and GM Place, the
Downtown, Kitsilano, and on the north shore of False Creek to the
Roundhouse. Council has also approved incorporating a transportation
corridor into the planning of the South-East False Creek Lands, Burrard
Slopes, Coal Harbour and the Port Lands Developments.
Subsequent to the South False Creek report, the City purchased the CPR
corridor in South False Creek from west of Cambie Street to west of
Granville Street. This will enable the City to pursue the initial stage
of running a continuous streetcar line between Vanier Park and Science
World.
The City is in possession of two historic streetcars at this time. The
Interurban car #1207 was restored by BC Transit in 1990 and has been
recently leased for five years by the City. It is currently being
housed in a building at the display site situated near 6th/Moberly. The
car will be on displayed on weekends throughout the months of July and
August. Another Interurban car #1231 is currently being restored in
Victoria. It is expected to be restored and moved to Vancouver later
this summer.
In preparation of a streetcar demonstration project, the power supply
design is currently underway. The South False Creek line is expected to
be in operation next year subject to raising sufficient private funds.
DISCUSSION
To successfully incorporate a streetcar corridor into the planning
process, it is essential that more work be done to establish preliminary
streetcar alignment options in the downtown area. This should reflect
and reinforce the City's transportation priorities and establish strong
links with land use decisions. A Downtown Historic streetcar will help
achieve the goal of developing transit-oriented neighbourhoods for both
the existing and future development of South False Creek, the downtown
peninsula, and the Port Lands. It would also promote a heritage theme
and improve access to a number of tourist facilities in the downtown
area, thus promoting tourism. Finally, a streetcar line could form part
of a region-wide transportation system by ensuring an efficient
distribution of transit patrons in and around the urban core of the
region. It should be a continuous link from the South False Creek Line
and ideally would be integrated with existing transit services.
The undertaking of a consultant study is expected to identify a
conceptual alignment option for a future streetcar system in the
downtown area and to provide information on its financial impacts and
financial options. This report will be the first of a series of steps
in gaining public awareness and support in achieving the goal of
developing such a system. Staff will be seeking Council s endorsement
of a preferred streetcar alignment so that it can be incorporated in the
future policy decision making process. The identification of a future
streetcar alignment will help Council and staff in planning future land
use along the alignment.
The Downtown Historic Railway Alignment Options study would be a
two-phase study. Phase I would be the identification of possible
streetcar alignments and station/stop locations and Phase II will be an
economic analysis to determine the costs and financial options of the
system, as well as an analysis of operational parameters and ridership.
Phase I Study
In this phase of work, the consultant will generate streetcar alignment
options in the downtown area for City and stakeholders/public input.
The study will evaluate possible linkages from the South False Creek
system at Science World to Chinatown and Gastown, the Port Lands
Development, Coal Harbour and Stanley Park, BC Place Stadium and GM
Place, the Downtown, Kitsilano, and on the north shore of False Creek to
the Roundhouse and possibly further west. A public process involving
the stakeholders, public, local authorities, and City staff will be part
of this phase of work. The alignment options will be reported to
Council for endorsement of the recommended alignment.
Phase II Study
This phase of the study will be an economic analysis of the streetcar
system to determine its capital and operating costs and financing
options. The consultant will generate ridership forecasts, estimate
capital and operational cost components, and determine potential
revenue from ridership. Potential integration with BC Transit s service
and fare schedule would also be included in the review. Risks of the
operation and impact issues such as noise and vibration would be
quantified as part of this phase. The project would be a major capital
undertaking, a significant investment in transportation infrastructure
and in development of the urban core. As part of this phase, the
consultant will identify potential sources of capital contribution to
finance the streetcar system. This may include public subsidies from
senior government and/or private sources to design, build and operate
the streetcar.
A consortium of engineering consultants and urban designers is required
to undertake the Downtown Historic Railway Alignment Options study. The
selected team will have expertise in areas of transportation planning,
ridership projection, engineering design and construction of electric
passenger rail system, as well as land use planning, urban design and
heritage. The terms of reference for the study are attached in Appendix
A for reference.
FUNDING
The study time frame is about 20 weeks. The Phase I report is expected
to be finalized by the end of November which should provide adequate
time for the completion of the Phase II report. It is estimated that
the cost of the study would be about $80,000. City costs associated with
the public process such as advertising & meeting space rental would be
about $4,000.
Currently, there is no funding allocated in the 1997 capital budget for
this work. However, there are sources of existing funds that can be
assigned to this study. It is recommended that funds be appropriated
from the following accounts:
Acct. #12/31/6905/999 Payment-in-lieu of Stadium Parking $56,000
Acct. #12/31/9813/999 Streets Basic Capital, $28,000
Unappropriated Arterial
Improvement/Transit
Total (incl. GST) $84,000
The Stadium Parking account holds the payment-in-lieu amounts from the
reduction in the required stadium parking in the Concord Lands. In
1989, Council amended the ODP to reduce parking required for the Stadium
by 1000 spaces. The funds are to be applied to improvements to the
pedestrian/bicycle/transit network in the downtown area. The assignment
of these funds to finance the Downtown Historic Railway Alignment
Options study is appropriate as the streetcar would promote and
encourage the use of an alternative mode of transportation in the
downtown area.
CONCLUSION
The study of the Downtown Historic Railway Alignment Options will help
achieve a continuous streetcar system in the downtown from the South
False Creek corridor at Science World. Results from this study will aid
Council and staff in planning future land use along the alignment.
Staff recommend that City Council approve the recommendations in this
report.
* * * * *
Terms of Reference
Downtown Historic Railway Alignment Options
PURPOSE
The City of Vancouver is investigating the potential for an urban
streetcar line along False Creek North and to other downtown
destinations. As a continuation to the system identified for the south
side of False Creek in 1996, the system would be rail-based providing
short trips and frequent service, potentially including integration with
the BC Transit system. Potential destinations include Coal Harbour,
Stanley Park, Chinatown and Gastown, the Port Lands, the proposed Trade
and Convention Centre, B.C. Place Stadium and GM Place, the Downtown,
Science World and on the north shore of False Creek to the Roundhouse.
The objective of the study is twofold. Phase I is to generate
preliminary alignments for the streetcar alignment with possible
station/stop locations identified. Phase II is to determine the capital
and operating costs and financing options.
Upon completion of this study, City staff will be seeking Vancouver City
Council's endorsement of the preferred conceptual streetcar alignment so
that it can be incorporated into our policy decision making process. It
is anticipated that this will be the first of a series of steps in
achieving the goal of providing a streetcar system in the downtown area.
CONTEXT
In 1994, the City of Vancouver commissioned a study to identify an urban
transit line through False Creek South. The report, False Creek South
Rail Line Study, prepared by Permatrack/Sypher Mueller was endorsed by
Vancouver City Council. Subsequently, the City has purchased the CPR
corridor along South False Creek in order to establish a continuous link
between Vanier Park and Science World.
False Creek North is a growing residential community on the Concord
Pacific lands presently focused west of the Cambie Bridge. The Plaza of
Nations to the east of the bridge is a commercial/entertainment precinct
currently undergoing a rezoning process for a hotel development.
Between the Plaza and Science World, the remaining Concord Pacific
parcels are envisioned for residential use. Major development
activities are also occurring at the Marathon and Bayshore sites with
the possibility of a future convention centre at the Central Waterfront.
Similar to the south side of False Creek, this study will examine a rail
line modelled after Portland's, San Diego's or lighter European systems
to serve short local trips, provide a transit link for commuters, and
serve tourists. For the purposes of this study, the consultant should
not assume the system will be operated by BC Transit. However, the
study should address how the rail system can be integrated with BC
Transit's services and fare plan.
In light of Vancouver City Council's policy to consider transportation
corridors in the development areas of False Creek North and the Central
Area, the alignment should be kept on an exclusive right-of-way as much
as possible. Transit corridors have been allocated through the Marathon
and Bayshore sites. Currently, negotiations are underway with The Plaza
of Nations to reserve a streetcar corridor along the front of their
site. The future alignment may be located in the street right-of-way or
a combination of street and acquired/dedicated private property.
STUDY AREA
The study area is the Vancouver downtown peninsula north of False Creek,
extending from Chinatown in the east to Stanley Park in the west.
Alignment options should be generated to provide linkage from Science
World to destinations including Coal Harbour, Stanley Park, Chinatown
and Gastown, the Port Lands, the Trade and Convention Centre, B.C.
Place Stadium and GM Place, the Downtown, and on the north shore of
False Creek to the Roundhouse and possibly further west.
SCOPE
The final product must meet the City's goals and be completed to the
satisfaction of the City Engineer and the Director of Central Area
Planning. There will be two phases to the study and defined below are
the specific goals for each phase of work.
The study objectives for Phase I of the project are:
* to determine conceptual streetcar alignment options to serve the
downtown area. Details of options should include land requirements,
station and/or stop locations, approximate alignment of each option
and possible integration with development (eg. Convention Centre);
* to participate in the public process to obtain and evaluate public
and stakeholders input;
* to prepare preliminary streetcar alignments for the preferred
option. This would include details such as turning radius,
alignment width, height restrictions, station/stop locations and
the identification of all land requirements for the stations/stops
and the alignment.
The consultant will provide general alignments, evaluate each of the
options and recommend a route having regard for urban design, land use,
transit ridership, transportation patterns, and traffic management. It
should be ensured that the options are compatible with land use, urban
structure, urban form and be consistent with City planning policies and
objectives. Potential traffic impacts and environmental impacts such as
noise and vibration should also be identified and quantified for each
option considered. It should be assumed that the rail stations will
have a heritage or rail station style yet be simple in design providing
basic seating and weather protection. Opportunities should be explored
for a larger station integrated with an adjacent land use. It should also be assumed that the system will be fully accessible by wheelchairs
and consist of a main fleet of newer vehicles and one or two heritage
vehicles which may not be fully accessible.
The study objectives for Phase II of the project are:
* to develop a model to perform ridership projection for the market
components of regular transit patrons and tourists;
* to prepare an estimate of the capital and operating costs. Capital
costs are to include specific items for acquiring and completing
the rail bed and tracks, signals, electrical works, cars, stations
and all traffic management devices necessary for implementation,
but excluding land acquisition costs. Operating costs should
include staffing levels and maintenance;
* to quantify potential impacts, such as noise and vibration, and
advise on mitigation options;
* to determine potential revenue and financial impacts if the
streetcar system is integrated with BC Transit service and fare
plan, similar to Blue Bus or Skytrain;
* to advise on how the system can be financed. Potential sources of
capital contribution to finance the streetcar may include public
subsidies from senior government and/or private ventures to design,
build and operate the system;
* to advise on phasing options.
Ridership projection will consist of regular transit patrons, people who
may choose to switch from using private automobiles to the streetcar
system, and tourists. Factors to be considered should include the
retention of existing bus routes, connections to an expanded False Creek
Ferry service, Skytrain, future LRT, and seasonal variation. The
consultant is expected to liaise with other authorities, including BC
Transit and/or GVRD to obtain relevant data and demographics for the
generation of a ridership model. For the purpose of this study, it
should also be assumed that the streetcar fare system and frequency of
service are compatible with BC Transit's services.
PROCESS
The consultation process will include liaison with City staff throughout
the project to ensure that the direction of the study is consistent with
City needs. Once the contract is awarded, the consulting team will
attend a project initiation meeting with City Engineering and Planning
staff to review the works expected. Review meetings are required to
review the alignment options, prior to finalizing the recommended
alignment, and upon completion of the first draft reports (Phase I and
Phase II ). Any major or outstanding issues arising out of the first
draft reviews must be addressed by the consultant.
Phase I
This phase of the study will include a public process. It is expected
that the consulting team would participate in a minimum of three general
stakeholder meetings, two public open houses, a series of specific
interest group meetings plus regular meetings with City staff as well as
a final presentation to City Council.
The stakeholders to be included in the process include City staff, BC
Transit, Park Board, property owners, and local Business Associations.
The first stakeholders meeting will be to discuss the objectives of the
study, the proposed streetcar system, parameters influencing alignment
selection, and related matters. The next general stakeholders meeting
would be to review the alignment options and gather input. A final
general stakeholder meeting would be for the consulting team to present
their recommendations. Public open houses in the beginning and the end
of the study are also required for the consultant to obtain public input
and to provide feedback. Spinning off from the general meetings, it is
expected that there will be a series of specific meetings with interest
groups such as Science World, Park Board, Chinatown, Gastown, Convention
Centre, the DVB and the DVBIA, other business associations and property
owners such as Concord, Marathon, and Bayshore plus others.
City staff will make all necessary arrangements for the undertaking of
the public meetings as well as assume the leading role in the public
process. The consultants are expected to propose ways of generating an
engaging public process and to participate in this process. All
presentation materials are to be provided by the consultants as
requested by City staff.
Phase II
The second phase of the study will be the technical component of the
overall study. The consultant is expected to liaise with the
appropriate authorities, including the City, BC Transit and/or GVRD, to
obtain all necessary background information. Ongoing liaison with City
staff is expected to ensure that this phase of work is on track.
PRODUCT
The product will consist of two written reports (Phase I and Phase II),
preliminary design drawings of the preferred streetcar alignment, and
coloured conceptual illustrations of a streetcar and alignment on
selected streets including adjacent developments.
The written reports will be in 8.5 x 11" vertical format. Included in
the report will be maps, drawings and photographs as deemed necessary by
the staff project managers. Reduced copies of the preliminary design
drawings for the recommended alignment corridor will be incorporated
into the report. The consultant will provide 5 unbound copies of the
draft report, one unbound reproducible black and white final copy and 10
bound copies of each of the final reports. A disk copy of the written
reports in a City compatible format and a disk copy of the analyses and
generated model will also be provided by the consultant. Two sets of
scaled drawings and one set of reproducible mylar of the final
preliminary streetcar alignment design must also be submitted to the
City by the consultant.
Presentation size coloured illustrations of the urban design images for
the conceptual alignment options and the final recommended option will
be provided by the consultant. Other presentation materials including
maps, drawings, photographs and slides as deemed necessary will also be
provided by the consultant.
The reports, design drawings, copy of the analyses and subarea model,
conceptual illustrations and other presentation materials will be the
property of the City of Vancouver.
STUDY TEAM
The study team should be a consortium of engineering consultants, land
use planners and urban designers. They should have expertise in
transportation planning, environmental impacts, ridership projections,
economic/financial analysis, engineering design and construction of
electric passenger rail systems, as well as land use planning, urban
design and heritage. The consultants should have a thorough knowledge
of the City s transportation, planning, development and urban design
policies. Specific knowledge of capital and operating costs is crucial
to the success of the project. The study team will be selected on a
number of factors including expertise with rail systems, ability to meet
deadlines, an understanding of City needs, and an appropriate
methodology.
The consultant must declare any contracts or interest they may have in
any current transit studies or neighbouring land development. The
consultant must be fully prepared to offer professional advice to the
City independent of any past, present or future transportation planning
contracts.
CITY RESOURCES
The staff team will provide the consultants with the following:
- False Creek South Rail Line Study
- Vancouver Transportation Plan
- False Creek North and Coal Harbour ODPs
- Port Lands Policy Statement
- Central Area Plan
- Population data
- Existing and historic traffic volumes
- Existing transportation corridors
- Geometric plans of selected streets
- Other policies and plans as appropriate
TIMING AND BUDGET
The study time frame is a total of 20 weeks, including 2 weeks for City
review of the draft reports. The final Phase I report must be completed
by December 1, 1997. The final Phase II report must be completed by
January 19, 1998.
The anticipated budget for the study is about $80,000 including GST.
Proposals should be submitted for a fixed price inclusive of all
disbursements consistent with the City budget. If the required scope
cannot be completed within the proposed budget, alternative budgets or
scope of works should be submitted for consideration. Payment will be
upon satisfactory completion of the final report.
PROPOSAL FORMAT
The proposal should include:
- a company brochure;
- resumes and details of all relevant members of the study team;
- background of previous experience with similar projects carried out
by team members;
- proposed study methodology and public process including a project
schedule;
- work items to be contracted out with the names of sub-consultants;
- per diem or hourly charge out rates for all team members;
- total fixed price budget showing the estimated staff time by person
and cost associated with major work items including disbursements;
and
- a subtotal fixed price budget for each phase of the study.
The proposal must be submitted by August 25, 1997, to the City Engineer,
City of Vancouver, 453 West 12th Avenue, Vancouver, B.C. V5Y 1V4.
Consultants will be notified by September 4, 1997, and the selected
consultant should be prepared to commence the study the following week.
The city will require the selected consultant to enter into a
Professional Services Agreement.
STUDY COORDINATION
Day to day staff liaison will be with Judy Tse, P.Eng. The study will
be jointly managed by Engineering and Planning staff. The study will be
completed to the satisfaction of the City Engineer or his designate
Peter Bremner, Greenways and Local Improvements Engineer and the
Director of Central Area Planning or his designate.