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ADMINISTRATIVE REPORT
Date: February 12, 1998
Author/Local: Doug Louie/7915
CC File No. 8014
RECOMMENDATION
A.THAT Council approve in principle a traffic and parking study of Kits Point/ Vanier Park based on the draft terms of reference attached to this report as Appendix "A", and that $25,000 be added to the 1998 Operating Budget for the consultant(s) and related work; and
THAT the traffic consultant(s) seeks input from local residents including the Kits Point Residents Association, the cultural institutions, bus tour operators, and City staff.
B.THAT the proposal to ban regularly scheduled bus tours to Kitsilano Point or to discontinue the bus tour stop at the Maritime Museum not be pursued, and that in the context of the strategies proposed by the traffic consultant's study, appropriate measures be developed to mitigate neighbourhood impact.
COUNCIL POLICY
Council's transportation policy places the highest priority on pedestrians, bicycles, and transit.
PURPOSE
The purpose of this report is to seek Council's approval for a consultancy to measure and assess traffic and parking impacts within Kits Point and address a specific proposal by the Kits Point Residents Association to ban scheduled bus tours to Kits Point.
SUMMARY
Ongoing discussions with Kits Point residents about their concerns regarding traffic speeds, volumes and intrusion into the neighbourhood have resulted in a number of changes and adjustments. More recently, the Kits Point Residents Association (KPRA) has made a number of requests that have significant implications for traffic patterns in the neighbourhood. Because the requested changes could be detrimental to the institutions and the general public, a comprehensive traffic and parking study is recommended. The study would be able to determine the traffic impact from the institutions during the peak periods and would make recommendations for short and long term strategies to meet the needs of all stakeholders (eg. residents, institutions, and the general public). The specific request by the KPRA to ban scheduled bus tours to Kits Point is not recommended due to the impacts it would have on the cultural institutions and the City in general.
BACKGROUND
Vanier Park is home to several of the City's cultural institutions - the Vancouver Museum, the Vancouver Maritime Museum and the Planetarium (now Pacific Space Centre) have been permanent residents in the park since the mid 1950's. The Vancouver Academy of Music, Vancouver Archives, Civic Marina, and Coast Guard are also permanent facilities in the park. More recent seasonal cultural uses include the Vancouver International Children's Festival and Bard on the Beach. Kitsilano Beach Park also contributes to the seasonal activities. A map of Vanier Park is attached as Figure 1 for reference.
Since 1996, Council has approved a series of recommendations with respect to the future operations of the Vancouver Museum, the Pacific Space Centre and the Vancouver Maritime Museum including capital improvements and program expansion. New facilities and programs have been introduced in these institutions to recapture former audiences and attract new visitors. In particular, the Pacific Space Centre and Vancouver Museum revitalization projects are expected to increase attendance compared to the low attendance of recent years.
The need to balance the interests of the local residents, cultural institutions, and general public has been the subject of studies and discussions since the 1970's. In October 1992, Council approved the Kitsilano Traffic, Cycling and Parking Plan and the implementation of a number of traffic improvements, including the establishment of the roles of various streets within Kits Point. Many changes have been implemented as a result of this Plan, and as a result of ongoing consultation. A major feature was to designate the perimeter streets as the collector route, and push traffic and parking out of the core streets.
However some residents in Kits Point continue to express their concerns with respect to traffic and parking impacts, particularly from the scheduled bus tour services. The KPRA has expressed a number of concerns and made a number of requests. These are attached to this report as Appendix "B".
DISCUSSION
Recent Changes
After the completion of the 1992 Kitsilano Plan, a perimeter route at Kits Point for majority of traffic, including buses, was encouraged along Chestnut, Ogden, and Arbutus. This involved the installation of several traffic circles within the core residential streets and a resident parking program. However, ongoing discussions have been held with residents to address continuing concerns about traffic speeds, volumes and intrusion into the neighbourhood. The following changes have been made: ·installed No Stopping signs along the entire north side of Ogden Street,
·installed Local Traffic Area signs in the neighbourhood,
·installed additional directional signs to Kits Beach on Cornwall Street,
·installed additional 30 km/h playground signs along both sides of Chestnut,
·replaced seasonal permit parking signs with full-time, year round permit parking signs on Ogden, Chestnut, and Cypress Streets, and
·installed No Stopping Anytime signs at Cypress and Greer to reinforce the corner clearance regulation.
Specific concerns (visual, air, and noise pollution) from residents about the scheduled bus tours into Kits Point led to several changes by the bus tour operators. They include: ·the Vancouver Trolley company agreeing to stop the ringing of their bells at their two stops at Kits Point,
·the Vancouver Trolley and Gray Line changing their bus tour routing from along the perimeter streets in Kits Point to the current, most direct route to Vanier Park via Cypress, Greer, and Chestnut,
·the relocation of the tour bus stop on Ogden Street, adjacent to the Maritime Museum, to the Museum's parking lot,
·the repair of a noisy transmission and squealing brakes on one of the Trolley company's buses, and
The parking lot at the Pacific Space Centre has also been a concern for residents. The exiting of vehicles from the northern driveway near Chestnut and McNicoll, and subsequent impacts on the neighbourhood, have led to an attempt by Building Management staff to direct and physically divert traffic away from the northern driveway after special events.
More recently, the KPRA has requested some turn restrictions, the closure of the northern driveway of the Pacific Space Centre's parking lot, and the banning of scheduled bus tours into Kits Point. These requests have significant implications for traffic patterns in the neighbourhood and will affect the institutions, the bus tour companies, and the general public.
Traffic and Parking Impact Study
In October, the Pacific Space Centre opened its new facility. This coming April the Vancouver Museum will open a new orientation gallery and in June, a major new exhibition. It is anticipated that the attendance and related traffic impacts of these changes will not be fully realized until the summer months when the permanent institutions enjoy their highest attendance and the festivals are active in the park.
While residents, the cultural institutions and staff have in the past undertaken periodic traffic counts, it would be most useful to undertake a comprehensive traffic study once the activities are fully operational and prior to any further changes to current traffic patterns. Therefore it is recommended that a traffic consultant be retained to assess the transit, traffic, and parking impacts of the revitalized institutions and make recommendations which address the safety and noise concerns of the residents, meet the needs of the City's cultural institutions, and provide access for the public to the City's institutions, parks and beaches. Draft terms of reference for a traffic and parking consultancy are attached to this report as Appendix "A".
As part of the study, the consultants will be required to seek input from all stakeholders, including residents, the cultural institutions, bus tour operators, and City staff, in developing short term (1-3 years) and long term (3+ years) strategies and recommendations for Council's consideration. As part of the strategies the consultants will address the possibilities of alternative street access (including a Fir Street extension into Vanier Park or a parallel roadway adjacent to Chestnut Street) and an extension of the heritage streetcar into Kits Point.
Bus Tours to Kits Point
In the fall of 1997, the Kits Point Residents Association wrote to Council requesting the elimination of scheduled bus tours from Kits Point and that a drop off point for all tour buses be moved to Cornwall and Chestnut Streets until such time an alternative road access that separates the neighbourhood from Vanier Park traffic is completed. The Association's request is based on their assessment of the institution's business in which it is concluded that the bus tour companies (Vancouver Trolley Company and Gray Line) are not necessary to the financial viability of the cultural institutions, as they measured few bus tour passengers disembark at the Pacific Space Centre. This is attached as Appendix "C". The cultural institutions do not support this analysis.
Gray Line has operated a city bus tour including stops within Kits Point at the Maritime Museum site and Pacific Space Centre site for more than 10 years. The Vancouver Trolley Company also has included these stops in its scheduled city tour since its inception in 1991. Both Gray Line and the Vancouver Trolley operate under licenses issued by the Motor Carrier Commission. Their licenses permit scheduled bus tour service to Kits Point following a specified route, charging a set fare, and meeting a number of other operational requirements.
Specific approval from the City for a scheduled bus tour service is not a requirement. Despite this, the Motor Carrier Commission (through the Motor Carrier Department) considers the advice of the City prior to making its decision, and seeks to reach a decision that would accommodate the City's needs. However, in the event of a conflict between the decision of the Motor Carrier Commission and of the City, the Commission's decision would be binding.
Given that the Pacific Space Centre, the Vancouver Museum, and the Maritime Museum are tourist destinations that are frequented by many buses such as school and tour buses, it is unreasonable to ban all buses from travelling to those institutions. The question of banning some buses, such as the scheduled bus tours, would appear to be discriminatory since there are no technical or safety reasons to ban these buses only.
The ban would be detrimental to the Vanier Park cultural institutions and to the City's tourists. As a result of the request to eliminate buses, and prior to Council's consideration of the KPRA proposal, the tour buses stopped service to the Vancouver Maritime Museum. The Museum expressed its concern regarding the resultant drop in attendance which is attributed to the elimination of the service. The cultural institutions all have expressed their belief that tour buses are an important method of introducing tourists to the cultural institutions at Vanier Park and that they do make a difference with respect to their financial viability, directly and indirectly.
The impact to residents from the scheduled bus tour service to Vanier Park is recognized. It is therefore recommended that, in the context of the traffic and parking study, further mitigation measures be explored in consultation with residents, bus tour companies, the cultural institutions, and City staff.
It should be noted that, in the past, the bus tour operators have demonstrated a willingness to accommodate the needs of the residents where possible. For example, the tour bus routes and stops have been changed, the ringing of bells has been eliminated, and the repairs of noisy buses have been made. As well, the institutions have demonstrated a willingness to accommodate their neighbours where practical, and are eager to undertake the proposed traffic and parking study to further mitigate impacts from their facilities.
FINANCIAL IMPLICATIONS
The consultant study of traffic and parking impacts of the Vanier Park cultural institutions was not contemplated in existing operating budgets. Therefore, the cost of the studies and related work at $25,000 needs to be added to the 1998 Operating Budget. The institutions will be asked to contribute to the study "in kind", by assisting with attendance counts and surveys, etc. to keep costs to a minimum.
IMPLEMENTATION
With the acceptance of the attached Terms of Reference, consultant selection will begin and work will commence shortly thereafter. A report back to Council will be made in the Fall of 1998 after observations are made in the summer during peak periods.
CONCLUSION
A comprehensive analysis of the traffic and parking impacts from all activities within Kitsilano Point is necessary prior to making any significant adjustments. Therefore, a draft of the Terms of Reference for a consultancy to assist in this analysis and provide short and long term solutions to address the needs of the institutions, the residents, and the City at large is submitted for Council's approval in principle.
The banning of scheduled bus tour service to Kits Point is not recommended due to the negative impacts it would have on the cultural institutions and the City in general; however, further mitigation measures will be explored and negotiated to the extent possible in the context of the traffic and parking study.
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FIGURE 1
VANIER PARK
Hard Copy only - On File in City Clerk’s Office
APPENDIX A
Draft Terms of Reference
for Kits Point Traffic and Parking Study
Background
Vanier Park is home to several of the City's cultural institutions - the Vancouver Museum, Vancouver Maritime Museum and Pacific Space Centre have been permanent residents in the park since the mid 1950's. The Vancouver Academy of Music and City of Vancouver Archives are also permanent facilities in the park. More recent seasonal cultural uses include the Vancouver International Children's Festival and Bard on the Beach.
Because the cultural institutions and festivals within Vanier Park are located adjacent a residential neighbourhood, there have been ongoing concerns regarding the traffic impacts on the neighbourhood. Several traffic studies have been completed in the past to try to resolve these issues. They include the 1977 Kitsilano Point Plan, a 1982 study by Coriolis Consultants on the future of Vanier and Hadden Park, a 1986 Vanier Park Access Study, and a 1992 Kitsilano Traffic, Cycling, and Parking Plan.
With the completion of the renovation of the Planetarium into the Pacific Space Centre, and ongoing revitalization project for the Vancouver Museum, the traffic impacts to the residential neighbourhood needs to be reassessed. In addition, the adequacy of the institution's existing parking lot and access arrangements to Kits Point needs to be reviewed and perhaps revised. Because limited staff resources and the fact that the City leases the lands to the institutions, a third party traffic study was recommended to complete a comprehensive review.
Objectives
The objectives of this consultancy are: ·to assess the traffic and parking impacts of the park/beach, cultural institutions, and festivals within Vanier Park ( Pacific Space Centre, Vancouver Museum, Maritime Museum, Archives, Academy of Music, Vancouver International Children's Festival, Bard on the Beach and other special events).
·to make short term recommendations (1-3 years) to mitigate any traffic and parking impacts to meet the needs of residents, cultural institutions, festivals and special events, and the general public.
·to recommend long term strategies (3+ years) to resolve major traffic and parking impacts of the cultural institutions and other activities within Kits Point.
·to assist City staff in the presentation of the results and recommendations of the traffic and parking study to City Council and the general public.
Scope of Work
The consultant's tasks are to include, but not be limited to, the following: ·Assemble and review all existing reports and data available to date. This includes previous traffic studies, relevant Council reports, attendance records, and event schedules.
·Meet with all stakeholders to determine their concerns and needs. This includes local residents, bus tour operators, the institutions, City staff, and the general public.
·Gather new traffic data as necessary. Assistance from city resources can be provided.
·Review the operation and layout of the cultural institution's parking lots including loading and bus access.
·Recommend how the parking lot layout could be made more efficient and how the operations could be streamlined and made more productive.
·Evaluate existing peak period traffic patterns within Kits Point and potential impacts from any future increases.
·Review, evaluate, and recommend short term strategies to reduce traffic congestion, noise and pollution within Kits Point.
·Review and evaluate longer term strategies to mitigate existing and potential future traffic and parking impacts, including the proposed Fir Street road extension, a parallel roadway adjacent Chestnut Street, and a streetcar extension into Kits Point.
·Review methods to reduce the impact of bus traffic to Kits Point, having particular regard to scheduled bus tour traffic. This is to include the possibility of consolidating scheduled bus tour stops within Vanier Park.
·Discuss the results of the analysis with all stakeholders, including residents, City staff, and City Council.
Proposal
Proposals should include a work program, staff to be assigned, previous experience, and a budget for fees and disbursements. The City is seeking proposals not exceeding $25,000 inclusive of disbursements and applicable taxes.
APPENDIX B
Issues and Concerns raised by
Kits Point Residents Association
Issues: ·Increased traffic and parking demands resulting from the renovations of the Pacific Space Centre and the Vancouver Museum.
·The high frequency and speed of bus traffic to and from the cultural institutions at Vanier Park and the accompanying visual, noise, and air pollution. In particular, certain individual buses were observed to have very noisy brakes and transmissions.
·The visual, noise and air pollution created by school buses parked on the west side of the Pacific Space Centre's parking lot adjacent to Chestnut Street.
·The inadequacy of the current access roads to Vanier Park, and routing of traffic on residential streets.
·The inappropriate use of the Pacific Space Centre's parking lot by others who are not attending any of the institutions at Vanier Park.
Residents' Requests: ·Modifications to the Pacific Space Centre's parking lot including the closure of the driveway at Chestnut and McNicoll.
·The reduction of speed limits to reduce noise levels and increase safety.
·The parking of school buses on the south east corner of the Pacific Space Centre's parking lot to reduce neighbourhood impact.
·The separation of local traffic and traffic to the cultural institutions at Vanier Park.
·A reduction in the frequency of scheduled bus tours into Vanier Park.
·Elimination of the tour bus stop at the Maritime Museum parking lot.
·Elimination of all scheduled bus tours into Kits Point and the relocation of the bus tour stop within Vanier Park to Cornwall and Chestnut.
APPENDIX C
Letter dated September 15, 1997 from Kits Point Residents Association.
Hard Copy Only - On file in City Clerk’s Office. * * * * *
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