POLICY REPORT

DEVELOPMENT AND BUILDING

Date: March 31, 1998

Author/Local: MvHausen/7826

CC File No. 5301

TO:Standing Committee on Planning and Environment

FROM:Director of Central Area Planning, in consultation with the General Managers of Engineering Services and Parks & Recreation

SUBJECT:West Georgia Street Tree and Sidewalk Design Guidelines

RECOMMENDATION

A.THAT the attached West Georgia Street Tree and Sidewalk Design Guidelines, Appendix A, be approved.

B.THAT existing street trees be given consideration for removal and replacement adjacent to redevelopment sites on West Georgia Street, in situations where they are in significant decline, few exist, or construction will significantly damage them, at the discretion of the Board of Parks & Recreation, in consultation with the City Engineer and the Director of Planning.

C.THAT the ‘October Glory’ Red Maple tree be substituted for the ‘Red Sunset’ and ‘Morgan’ Red Maple trees as the recommended replacement tree in sub-areas 1, 2 and 5 to improve continuity, hardiness and colour along West Georgia Street.

D.THAT grass boulevards adjacent to the curb be extended east for high density residential areas, between Chilco and Bute Streets, in accordance with Council’s policy and at the discretion of the City Engineer, in consultation with the Director of Planning and Board of Parks & Recreation.

E.THAT the General Manager of Engineering Services survey property owners to see if there is interest in initiating a Local Improvement project to complete the West Georgia Street public realm treatment in front of sites not likely to redevelop in the short term, and report back on the results.

GENERAL MANAGERS’ COMMENTS

The General Managers of Community Services, Engineering Services and Parks & Recreation RECOMMEND approval of A to E.

COUNCIL POLICY

Council has not formally adopted the West Georgia Street Public Realm Guidelines, included in the 1986 Georgia Street - Second Century report. However, the West End/Alberni Guidelines were adopted in 1989 which cover the south side of the western portion of the street from Chilco to Cardero Streets. These guidelines specify a slightly modified West Georgia Street tree and sidewalk treatment in this area.

Other Council-approved Policies that directly affect this report are:

·530·The Downtown District Character Area Description for Georgia Street (1984), includes development objectives that reinforce the dominant, formal character of the street; create a strong unified street image; and provide major pedestrian amenities;·530

·530·The Street Tree By-law (1986) outlines the requirements for street tree maintenance, removal and planting;·530

·530·The Park Board Street Tree Management Plan (1990), approved by Council, provides a basis for street tree planting and diversity; and·530

·530·Council also encourages the use of curbside grass boulevards (1992) as a standard in high density residential areas, except at the City Engineer’s discretion, in cases of heavy pedestrian traffic, anticipated neglected boulevards, or where specific beautification treatment of the boulevard has been approved.·530

SUMMARY

This report recommends a plan for the street tree and sidewalk treatment on West Georgia Street. This plan includes approval of the attached Street Tree and Sidewalk Design Guidelines for West Georgia Street, similar to those developed in 1986. These guidelines respond to changing land use patterns and current Council policy. The recommendations are limited to street tree and sidewalk treatment along the full length of West Georgia Street. These recommendations do not preclude future changes which may result from other initiatives from time to time. These recommendations also do not preclude additional street furniture and lighting that could be the result of future discussions with the members of the Downtown Vancouver Business Improvement Association and others. Specific recommendations include permitting replacement of existing trees where appropriate, changing the variety of Red Maple replacement trees in sub-areas 1, 2 and 5, and extending the curbside grass boulevard to Bute Street from Cardero Street adjacent to high density residential development. This report also recommends that a survey be undertaken of property owners, not likely to redevelop their properties in the short term, to advance the idea of improving the sidewalks of the entire street within 10 to 15 years.

PURPOSE

The purpose of this report is to:

·530·approve the West Georgia Street Tree and Sidewalk Design Guidelines;·530

·530·provide a plan to clarify tree replacement and the use of grass boulevards on West Georgia Street associated with new development; and·530

·530·approve a strategy for the sidewalk areas adjacent to those properties not likely to redevelop.·530

BACKGROUND

Three significant factors have directed this report:

1.There have been a number of reports that have included West Georgia Street:

(a)Greening Downtown (1983);

(b)Downtown District Character Area Description (1984); and

(c)Georgia Street - 2nd Century (1986).

The Georgia Street - 2nd Century Report [(c) above] contains the design guidelines that form the basis to this Council Report. Summaries of all three reports are included in Appendix B. The Georgia Street - 2nd Century Report and accompanying Design Guidelines were not formally adopted by Council because of the priority of other work. However, the accompanying street tree and sidewalk portions of the Guidelines were subsequently implemented. Other elements such as lighting, street furniture, tree variety selection and spacing are now either inappropriate or have been modified. The guidelines are also not clear in whether or not existing street trees would be replaced at the time of redevelopment. This lack of clarity and explicit direction has resulted in an inconsistent street tree replacement and retention policy in the execution of redevelopment projects along West Georgia Street. There is also no long-term sidewalk improvement strategy for properties not likely to redevelop on West Georgia Street.

2.The Street Tree Management Plan (1990) emphasizes more responsible street tree management on city streets. The Street Tree Management Plan advocates tree diversity and tree selection criteria for disease resistance, maintenance, longevity and adequate spacing. In keeping with this policy, modifications have been made to tree selection on West Georgia Street while maintaining the basic criteria of form, colour, texture and size. The associated annual Street Tree Planting Program does not provide funding to replace trees on commercial blocks east of Bute where development is unlikely to occur.

3.In the search to improve greening in neighbourhoods, especially in high density residential areas, Council policy directs grass boulevards in high density residential areas to be encouraged where appropriate. The West End high density residential area of West Georgia Street between Bute and Chilco Streets is particularly suited for this policy and there are a number of major projects currently under redevelopment that already have grass boulevards in place.

DISCUSSION

Council over the years has approved guidelines for special streetscape development. These guidelines ensure that the public realm evolves through private and public development initiatives to achieve a range of civic objectives related to clean air, livability, image, safety, low maintenance and security. In the downtown, these areas include Triangle West, Downtown South and Library Precinct. Similar guidelines have been used for West Georgia Street since 1986; although, these guidelines were never formally adopted. The following discussion summarizes the West Georgia Street tree and sidewalk portion of the guidelines; outlines the results to date; explains the merits of grass boulevards, tree replacement, andplanting vacant street tree sites; and closes with a strategy to complete the sidewalk treatment.

West Georgia Street Public Realm Guidelines

The Georgia Street - Second Century report was completed with the approval of the Public Realm Advisory Committee in 1986. The Committee consisted of over twenty representatives of major property owners along West Georgia Street, professional organizations, citizen advisory committees, City Departments and Park Board. This report was based on the goal of achieving a strong, unified visual image for the whole length of West Georgia Street, primarily through visual continuity of street trees and sidewalk paving. Consequently, the report has been used to guide sidewalk paving and street tree planting in coordination with major redevelopment projects along West Georgia Street. The guidelines call for the sidewalks to be broom finished concrete with an exposed aggregate border and banding across the sidewalk at tree locations. Red Maple trees will be planted in metal tree grates along the curb. A second row of Red Maple trees will be planted in an extended sidewalk where possible on the development site property.

Results to Date: Since the Georgia Street - Second Century report was completed, approximately one-third of the West Georgia Street sidewalk treatment has been approved, is under construction or has been completed as a result of redevelopment. The projects generally conform with the street’s tree and sidewalk guidelines but with some inconsistent results in terms of tree retention, placement, and paving surface treatment. In total, it is estimated that:

-35% of the street treatment is complete, approved, or under construction;

-15% is likely to be completed within 5 to 10 years; and

-50% is not likely to be completed in the short term as no redevelopment is expected (see Figure 1 on page 6: West Georgia Street Sidewalk Treatment Results).

West Georgia Street Sidewalk Treatment Results

(February, 1998)

West End/Alberni Street Guidelines: The developers of the Bayshore Gardens site initiated a staff review of the streetscape guidelines as they applied west of Cardero Street on the south side of the street in 1989. This stretch of West Georgia Street west of Cardero Street is proposed as primarily residential in character. The building setbacks are also much larger due to City requirements associated with road widening. A grass boulevard was subsequently agreed upon along the curb edge. A 6 m wide sidewalk proposed on the south side of the street allows for a double row of ‘October Glory’ Red Maple trees. This street tree treatment has also recently been adopted for use in the streetscape development associated with the Bayshore Hotel redevelopment site on the north side of West Georgia Street to reinforce the gateway to Stanley Park. Other details respecting the Georgia Street tree planting and sidewalk paving remain the same in this area. The distinguishing differences in this area’s streetscape design, therefore, are the double rows of trees and grass boulevards, as well as the possibility of a central median associated with the new crossing at the First Narrows.

The grass boulevard requirement in the West End/Alberni Street Guidelines should be further extended east from Cardero Street to Bute Street except where heavy pedestrian traffic or commercial uses makes it inappropriate. Grass boulevards are already in place in part of this area and their further development is consistent with Council policy regarding high density residential streetscapes. The modified design will help further "green" Georgia Street in this primarily residential section.

Tree Replacement: Tree replacement is a necessary ingredient to create a formal and unified treatment along West Georgia Street. Similar sizes, spacing and types of trees significantly contribute to the objective of a formal and unified street treatment. West Georgia Street public realm treatment has varied regarding tree removal and replacement. For instance, healthy Beech trees were retained in the application of the West Georgia Street sidewalk treatment in front of Christ Church Cathedral. This is a prime example where healthy trees were retained appropriately but as a temporary alteration of the intended Red Maple tree theme along West Georgia Street. As these Beech trees decline, they will be replaced with the required variety of Red Maple trees. In contrast, the adjoining Cathedral Place development planted new Red Maple trees and completed the required sidewalk treatment. Further west, in front of the Royal Centre, the Cherry trees were retained with the new sidewalk treatment. Numerous other sites including the Bank of Hong Kong and B.C. Gas sites have planted new trees with the new sidewalk treatment.

Generally, where healthy trees exist, they are retained; otherwise, the trees are replaced with a variety of Red Maple trees in accordance with the Georgia Street Guidelines. For continuity, hardiness and seasonal colour, the ‘October Glory’ Red Maple tree has been substituted for the previous ‘Red Sunset’ and ‘Morgan’ Red Maple trees as the replacement tree in sub-areas 1, 2 and 5. The ‘Scanlon’ Red Maple tree has been retained as the preferred replacement tree in Sub-areas 3 and 4. Its appropriate narrower form responds well to the generally narrower sidewalks in this section of West Georgia Street. Only in exceptional circumstances will a tree species, other than Red Maple, be used as a replacement tree. These exceptional circumstances will be limited to situations where the balance of the trees on the block are healthy and there is no pending development applications.

Recent developments on West Georgia Street provide valuable examples that illustrate a need for a tree retention policy that addresses new developments:

·530·redevelopment of the sidewalk adjoining new developments have created additional stress on existing trees;·530

·530·in many instances, the remaining existing trees have only 10 years left of healthy growth before significant decline and this decline is accelerated by the construction of the new sidewalk as it affects the existing root structure; and·530

·530·in many cases, only a few existing trees could be retained and a number of new replacements added, creating a non-uniform image, inconsistent spacing, and potential inconsistent growth patterns along the street.·530

It is recommended that existing trees be considered for replacement adjacent to new developments, when any of the following conditions occur:

·530·the existing trees are in significant decline (less than 10 years of estimated life remaining); and/or·530

·530·a significant number of existing vacant planting areas (greater than 50%) and the majority of the existing trees are in decline (less than 10 years of estimated life remaining); and/or·530

·530·the proposed new sidewalk construction would significantly damage the existing trees’ roots resulting in decline and death within 10 years.·530

Vacant Tree Planting Areas: It is estimated that 55% of the potential tree planting sites on West Georgia Street are vacant, although only an estimated 10 existing trees require replacement by the Park Board (see Appendix A, Figures 3-6 for details). This means that there are significant opportunities to plant street trees in areas not presently occupied by trees due primarily to generous tree planting spacing. This tree spacing, averaging 8 m (26 ft.), only considers those areas that provide opportunities for tree planting outside normal bus stop, loading, and other vehicular traffic access requirements. This amounts to an estimated 262 additional potential trees as compared to the 212 existing trees on the street, or approximately double the number of trees. These additional trees would significantly contribute to a strong and uniform image for Georgia Street. Many of these vacant tree planting sites border properties that are not likely to redevelop in the short term.

Strategy to Complete the Streetscape: The Georgia Street - 2nd Century report did not address a strategy for the properties not likely to redevelop in the short term. This amounts to approximately 50% of the properties overall on West Georgia Street, increasing to nearly 75% for the properties east of Thurlow Street covering the Downtown east to the Georgia Viaduct. These properties include the Hotel Vancouver which is already undergoing major renovations, along with the Post Office, Queen Elizabeth Theatre and the CBC Building, all unlikely to redevelop in the short term (see Figure 1, page 6).

To accelerate the improvement of West Georgia Street, it is recommended that Engineering Services complete a survey of property owners who are not likely to redevelop in the short term to determine the support for refurbishing the trees and sidewalk areas adjoining these properties. The funding source would probably be through a Local Improvement initiative, a partnership between the adjoining property owners and the City. Approximately 50% of these properties have sidewalks in fair to good condition, although not matching the detailed treatment required under the guidelines. However, in the majority of the cases, replacement and infill tree planting is needed.

An alternative partial improvement of only tree planting, funded at a lower cost through a Local Improvement initiative, could be considered. The Board of Parks and Recreation could work closely with Engineering Services and Planning to implement a tree planting program to infill the existing trees in decline on the street bordering those properties that are unlikely to redevelop in the short term. This latter alternative is least attractive as it places the burden solely on the City where there are very limited resources presently available for a project of this magnitude.

The exact timing for completing the balance of the West Georgia Street sidewalks will be dependent on the results of the property owners’ survey. The City will seek the support of the Downtown Vancouver Business Improvement Association (DVBIA) to aid in the survey and implementation. Approximately 75% of the unimproved sidewalks, not likely to be redeveloped by adjoining property owners, are located in the area from Thurlow Street to Beatty Street. The purpose is to try to gain and coordinate broad support for the sidewalk improvements through the representation of the DVBIA. City staff have already met with the DVBIA to discuss the proposal and possible options. A more unified effort would probably result in a faster implementation process and a higher quality sidewalk treatment.

ENVIRONMENTAL AND SOCIAL IMPLICATIONS

The further improvement of the West Georgia Street public realm will improve pedestrian activity, livability, safety and security along one of Vancouver’s principal streets. Its beautification will also contribute to cleaner air and general environmental improvement in the city.

FINANCIAL IMPLICATIONS

Currently, developers pay for the tree replacement and sidewalk improvements associated with new development. Any retention of existing street trees adjacent to new development means that future replacement costs will be the responsibility of the City. The proposed survey by Engineering Services will help determine whether there is enough interest to initiate a "Local Improvement" for those property owners who are not developing their properties in the short term. If so, the City would cost-share on the street tree and sidewalk improvements. The extent of this cost-sharing is still to be determined. The total estimated cost for completing the street sidewalks that are not likely to be completed in association with redevelopment (approximately 50%) is $750,000. This translates to approximately $57,000 for completing one side of a full block like the sidewalk in front of the Hotel Vancouver, including trees, grates and sidewalk treatment.

The City could also proceed to look at alternatives including targeting part of the Park Board’s annual tree replacement program for West Georgia Street. This latter alternative is not recommended as the budget can not properly serve the size, timing or requirements of West Georgia Street.

CONCLUSIONS

The adoption of the West Georgia Street Tree and Sidewalk Design Guidelines will clarify the current requirements associated with new development along the street. The recommended tree replacement and grass boulevard additions to the Design Guidelines will further help the consistent application of the public realm treatment associated with new development. The additional survey by Engineering Services of those property owners not likely to redevelop in the short term will, hopefully, provide a basis to proceed with the completion of the public realm treatment for the balance of the street following an accelerated schedule. This strategy will further contribute to a continuous and strong visual image along a premier street in Vancouver.

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APPENDIX B

Page 1 of 5

DETAILED BACKGROUND FOR THE

WEST GEORGIA STREET PUBLIC REALM

PREVIOUS RECOMMENDATIONS

1.GREENING DOWNTOWN (1983)

(a)‘A Strong Consistent Design Image’. Any design guidelines should reinforce the image of West Georgia Street as ceremonial and symbolic - rather than everyday and intimate.

(b)The report encourages the use of urban design guidelines to create a pattern of landscaping which will do justice to the West Georgia Street’s prominent role in the city.

(c)Design features that are advocated for the entire length of the street include:

(i)the use of sidewalk arcades and weather awnings on buildings fronting the street;

(ii)the use of landscaped promenades and landscaped public courtyards;

(iii)the limiting of service vehicle access to the lanes and side streets;

(iv)the planting of large Maples planted uniformly 1 m (3 ft.) from the curb; and

(v)the use of banners and street furniture.

Design Guidelines for the Four Character Areas are:

1)West End Georgia Street (Chilco to Cardero Streets)

(a)Trees should be large deciduous Maples planted 1 m (3 ft.) from the curb and spaced 6-9 m (20-30 ft.) apart in double rows.

(b)The fountain in Lost Lagoon should be rebuilt in a larger scale so that the water plume is at least 30 m (100 ft.) high.

(c)A pedestrian connection should be built between the north promenade of West Georgia Street and the walkway along the edge of Coal Harbour.

2)Georgia Slopes (Cardero to Bute Streets)

(a)The existing Cherry trees should be retained wherever healthy and that any empty planting spaces should be replanted in Cherry trees. The trees shouldbe in a single row on each side of the street, 1 m (3 ft.) from the curb and spaced 6-9 m (20-30 ft.) apart.

(b)The existing laybay at 1500 West Georgia Street (Crown Life building) should be eliminated because it interrupts the continuity of the tree planting.

3)Georgia Downtown (Bute to Seymour Streets)

(a)A double row of Maples should be planted around "Courthouse Square" to help define the space.

(b)The existing laybay at the 1075 West Georgia Street (Macmillian Bloedel building) be removed and the line of street Cherry trees be extended into the empty planting spaces.

4)Georgia Approach to B.C. Place (Seymour to Beatty Streets)

(a)All the empty planting spaces should be planted with Cherry trees.

(b)A ‘promenade’ with a double row of Cherry trees be constructed from Richards Street to Beatty Street on the north side to provide an attractive walking route between downtown and the stadium.

2.DOWNTOWN DISTRICT CHARACTER AREA DESCRIPTION (1984)

(a)The overall character of Georgia Street is described as dominant and formal.

(b)The building elements and landscaping should reinforce a strong unified image for the street.

Character Area Descriptions:

SUB AREA 1 (Chilco Street to Cardero Street)

(i)emphasis on pedestrian amenities;

(ii)a widened boulevard to the south side of the street to emphasize the entrance to Stanley Park; and

(iii) an appropriate transition from the terminus of the street to the park.

SUB AREA 2 (Cardero Street to Bute Street) - Emphasis on developing street definition and creating a transition from the West End residential to the downtown district.

SUB AREA 3 (Bute Street to Thurlow Street) - Emphasis on providing for an increasing number of pedestrians and on reinforcing the sense of visual enclosure.

SUB AREA 4 (Thurlow Street to Seymour Street) - Pedestrian activity to be reinforced and the emphasis is on the importance of major intersections.

SUB AREA 5 (Seymour Street to Beatty Street) - Provide a widened boulevard on the north side of the street to emphasize the entrance to B.C. Place Stadium and create a transition between the downtown district and B.C. Place Stadium.

3.GEORGIA STREET - SECOND CENTURY (1986)

Visual continuity for the length of West Georgia Street is to be provided by trees, lighting, sidewalks, street furniture and banners, with emphasis on gateways, nodes and intersections.

(a)Street Tree Continuity

(i)trees must be planted in an adequately sized planting zone;

(ii)trees should have a uniform branching pattern (round or oval);

(iii)leaf colour should be predominantly green;

(v)pruned to a 3 m (10 ft.) clearance of the sidewalk;

(vi)trees should be long lived and disease resistant;

(vii)tree canopy should be medium density;

(viii)trees should provide seasonal leaf colour change;

(ix)branches to provide strong winter clearance;

(x)at maturity trees should be 14 m (45 ft.) in height, by 8-9 m (25-30 ft.) spread; and

(xi)recommended use of three cultivars of Red Maple

(b)Use Street Trees to:

(i)create strong visual continuity;

(ii)develop a distinctive character for the street;

(iii)reinforce the different character zones; and

(iv)increase the presence of nature in the urban environment.

CURRENT CITY POLICY

1. WEST END GEORGIA/ALBERNI GUIDELINES (1989)

(a)West Georgia Street green courts and street landscaping should help to create a strong unified image of West Georgia as a distinctive and formal street.

(b)Architectural details in landscaping should allude to traditional detailing found in Stanley Park.

(c)The ‘green courts’ on West Georgia Street are to be primarily a visual amenity rather than for public use. The courts are to be contained on three sides and open on the West Georgia Street side. They should be designed to achieve a high degree of visual integration with the public realm. Preferred details to include rough granite retaining walls, stone balustrades and concrete lamp standards.

(d)Front yards should contribute to the greening character of the area.

(e)Streetscape - A double row of Acer rubrum ‘Red Sunset’ trees to be planted along West Georgia Street at 9 m (30 ft.) spacing. Planting details, tree grates and sidewalk paving should follow those described in ‘West Georgia Street -Second Century’ (1986).

2.STREET TREE MANAGEMENT PLAN (1990)

(a)Planting: The street tree population should be managed so that no more than 20 percent of the population consists of one tree genus and no more than 10 percent consists of one tree species.

The rate of annual tree planting should be increased to 3,000 trees per year to ensure that a street tree stocking level of 70% can be achieved within a 20 year period.

(b)Pruning: Vancouver Street trees should be pruned on a systematic basis every seven years.

(c)Removal: Trees that are dead or dying or hazardous beyond repair and diseased trees are removed as part of the removal and replacement program.

(d)Integrated Pest Management: Vancouver Park Board should proactively manage pest populations through the use of integrated pest management practices.

3.USE OF CURBSIDE GRASS BOULEVARDS (1992)

(a)The use of grass boulevards is encouraged in high density residential development sites except where heavy traffic crosses the boulevard, where maintenance might be neglected or where specific beautification of the boulevard has been approved.

4. TRIANGLE WEST STREETSCAPE DESIGN DETAILS (1995)

(a)Street trees planted along West Georgia Street to be Red Maples to replace the Kwanzen Cherries which are beginning to need replacement.

(b)The choice and placement of street trees in this area should create a sense of containment and green that will make the street more park-like.

5.PUBLIC REALM LIBRARY PRECINCT GUIDELINE AMENDMENT (1996)

(a)Maple trees should be planted along West Georgia Street at a spacing to match the spacing in Library Square. Where possible, a double row of trees should be planted on the north side of West Georgia Street.

(b)West Georgia Street treatment for the sidewalk paving patterns (on Georgia Street).

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(c) 1998 City of Vancouver