ADMINISTRATIVE REPORT

Date: October 10, 1997

Dept. File No.: ASD

CC File No.: 5767/5753

TO:Standing Committee on Transportation and Traffic

FROM:General Manager of Engineering Services and Director of Community Planning, in consultation with Manager of Non-Market Housing

SUBJECT:Ridgeway Greenway Road Closure of 37th Avenue West of Fraser Street (at Mountain View Cemetery)

RECOMMENDATION

A.THAT the closure of 37th Avenue at Mountain View Cemetery west of Fraser Street, approved by Council on June 27, 1996, be made permanent for Greenway development and that staff continue to work with the Cemetery consultants to integrate their development proposals into the Greenway design to maximize public benefit.

Alternatively, the following are submitted for CONSIDERATION:

B.THAT Council defer the decision on making permanent the closure of 37th Avenue at Mountain View Cemetery, west of Fraser Street, until after the Cemetery consultants report back in January 1998; and,

C.THAT staff be directed to resurvey all residents between 33rd and 41st Avenues, and between Fraser and Main Streets, and report back on the results.

GENERAL MANAGERS’ COMMENTS

The General Manager of Engineering Services and the Director of Community Planning RECOMMEND approval of A. If Council does not support A, B and C are submitted for CONSIDERATION.

COUNCIL POLICY

On July 18, 1995, Council adopted the Vancouver Greenway Plan and designated the Ridgeway Greenway on 37th Avenue between Knight and Granville Streets as the citygreenway pilot project.

PURPOSE AND SUMMARY

The purpose of this report is to review the status of the approved road closure of 37th Avenue west of Fraser Street (at the Mountain View Cemetery) as part of the Ridgeway Greenway pilot project and to recommend that it be made permanent.

BACKGROUND

On June 27, 1996, Council approved the construction of the Ridgeway, including the proposed road closure at Mountain View Cemetery, and directed staff to further consult with neighbourhoods affected by measures proposed between Granville and Oak Streets, and at Ontario Street.

The planning and design of the Ridgeway greenway pilot project resulted from an extensive public consultation process, summarized in Appendix A. In general, the level of public participation and support for this pilot project was high. In particular, many participants expressed support for the range of design opportunities presented by the road closure at Mountain View Cemetery.

The Angus Reid Group was hired to conduct a telephone survey to determine local neighbourhood support for the proposed traffic improvements, especially the proposed street closures. Their survey showed:

·overall support of 85% for the Ridgeway among the sample population between 33rd and 41st Avenues and between Granville and Knight Streets; and,

·71% support and 20% opposition (9% undecided) to the road closure at Mountain View Cemetery, west of Fraser Street, among the sample group of residents between Main and Fraser Streets.

The description and an illustration of the Ridgeway design at Mountain View Cemetery, included in the report approved on June 27, 1996, is attached as Appendix B. It noted that this was "a unique opportunity to create usable park-like space on the road to integrate the sections of the cemetery to the north and south and improve pedestrian access between them" as well as improving and enhancing visibility into the cemetery "with artist-inspired landscaping, a water feature using stormwater run-off and seating to contemplate the views."

To assess changes to local traffic patterns and allow additional comments from impacted neighbours, temporary road closure measures were installed on 37th Avenue at MountainView Cemetery on February 26, 1997. Information signage was posted on site to explain the proposal and to invite further public input.

Nineteen people called in response to the temporary closure. More than half (11) were opposed. However, this level of negative response was low within the context of the extensive public process and the results of the Angus Reid survey. The consensus of the larger community seemed to be that the overall benefits in terms of adding usable green space, building communities through neighbourhood projects and traffic calming outweighed the opposition resulting from automobile travel becoming slightly less convenient for some residents. Consequently, staff presented an Information Report to the Transportation and Traffic Committee on July 8, 1997, to notify them that construction to make this closure permanent would proceed later in the summer. However, due to additional opposition by local residents impacted by the closure (following the submission of the Information Report), Council reversed the decision to close 37th Avenue at Mountain View Cemetery and approved the motion "that the previously closed portion of 37th Avenue (west of Fraser at Mountain View Cemetery) be made a one-way street eastbound". At the subsequent Council meeting on July 22, 1997, that decision was rescinded, and it was agreed "that the foregoing matter be referred to a September meeting of the Transportation and Traffic Committee for consideration" (rescheduled to October 28, 1997).

DISCUSSION

Since July, there has been considerable response from the neighbourhood both in favour of and opposed to closing the road permanently. Analysis of the responses (as of October 10, 1997) indicates that (refer to Appendix C):

-Support (68%) is generally found on 36th, 37th, and 38th Avenues east of Prince Edward Street.

-Opposition (32%) is generally concentrated on 38th Avenue between Main and Prince Edward Streets.

In addition, groups including the Vancouver City Planning Commission, have written to express their support.

1. Concerns

The major concern expressed by residents is that the closure through the cemetery is an inconvenience to motorists in the area. Since the temporary closure was installed in February, 1997, local residents driving into and out of this neighbourhood have adjusted their routes. However, some residents seem particularly concerned about accessing Fraser Street,especially since left turns onto 41st Avenue from Prince Edward Street can be difficult at certain times of the day.

Some residents also reported that traffic volume and speed has increased along Prince Edward Street since the closure of 37th Avenue. Concerns had already been raised with respect to speeding and shortcutting traffic prior to development of the Ridgeway. In response, stop signs were installed on August 30, 1995. However, further traffic calming measures may be required. If Council approves making the closure permanent, staff will meet with concerned residents to determine how to best alleviate their concerns.

2. Benefits

The major benefits expressed by residents are presented below:

-Safe passage for pedestrians and cyclists along the Ridgeway. This is a truly unique opportunity in Vancouver to express pedestrian and cyclist priorities in the public realm and to fully realize the goals of the Ridgeway Greenway: to provide for safe, comfortable and convenient movement through the city for pedestrians and cyclists and to make that as stimulating and interesting as possible.

-Calmed traffic and increased quality of life for residents along 37th Avenue. On March 12, 1996, Council approved traffic signal improvements at arterials along the pilot project route, including at Main and Fraser Streets. Prior to the Main and Fraser Street signals, through traffic was already a concern in this area. If the street were reopened, the newly-installed traffic signals, to facilitate safe and convenient movement of pedestrians and cyclists across Fraser and Main Streets, would lead to an increase, rather than decrease, in traffic along this portion of the Ridgeway. Even with a one-way system, an increase in vehicular traffic volumes taking advantage of the new signals, despite the dogleg configuration, can be anticipated. The new signal at Main Street could also increase shortcutting through the neighbourhood to Fraser Street.

-Creation of usable public open space for passive recreation. There are opportunities for quiet reflection, and to enjoy the views to the north and the serenity of the cemetery setting.

-Better integration of major sections of Mountain View Cemetery. A study is currently underway to increase the public benefit of the cemetery. The section of 37th Avenue through the cemetery, if closed permanently to traffic, would provide a pedestrian and bicycle-friendly environment that includes opportunities for niche and memorial walls, a chapel and a water feature.

In light of the extent of the public process and consistent level of public support, the General Manager of Engineering Services and the Director of Community Planning recommend that the road closure of 37th Avenue west of Fraser Street be made permanent. However, Council may wish staff to resurvey the neighbourhood to confirm the current level of support for making the closure permanent.

3. Mountain View Cemetery Consultants’ Study

On March 25, 1997, Council approved the appointment of cemetery consultants to re-envision Mountain View Cemetery, including aspects of new revenue sources, heritage and site planning and development.

The Manager of Non-Market Housing, who is currently responsible for the Cemetery, wishes to report the following as it relates to the road closure:

"The Council-authorized consultant study to re-envision Mountain View Cemetery is underway and expected to report back to Council in January of 1998. The consultants, Philips Wouri Long Inc. in association with Harris Hudema Consulting Group Ltd. and Pechet & Robb Design, have been working with various stakeholders including neighbours, Heritage Vancouver, BC Genealogical Society, Riley Park Community Centre, cemetery employees and a City inter-departmental team, to develop a long range plan for the Mountain View of the future. The vision foresees the desirability of creating a sense of continuity among the various pieces of the cemetery by bridging the streets which currently divide the cemetery. The greenway, if closed permanently to traffic, would provide a pedestrian and bicycle-friendly environment that includes excellent opportunities for niche and memorial walls, a chapel and a water feature (formerly Brewery Creek).

The Mountain View Citizens Advisory Group has expressed a strong view that access for vehicles be limited and that pedestrian access and uses be encouraged. Attendees at the recent public meeting supported the vision although some people voiced opposition to the closure.

Since the community is divided in its position on the closure with views both pro and con, the future viability of the cemetery should be a serious consideration in Council's deliberations on the closure of 37th Avenue. It is the consultants' view that a permanent closure provides superior opportunities for the development of the cemetery as a welcoming and peaceful public place where loved ones can be buried, interred and remembered."

CONCLUSION

It is recommended that Council make the road closure of 37th Avenue at Mountain View Cemetery permanent for greenway development and that staff continue to work with the cemetery consultants to integrate their development proposals into the Greenway design to maximize public benefit. However, if Council chooses not to do so, consideration should be given to defer a decision on this issue until after the Cemetery consultants report back in January, 1998. In addition, Council may wish staff to resurvey all residents within this neighbourhood.

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RIDGEWAY PILOT PROJECT PUBLIC PROCESS

NOTIFICATIONS, MEETINGS, PRESENTATIONS, AND ANGUS REID SURVEY

EXTENT OF NOTIFICATION

Except where noted otherwise, approximately 5000 letters were sent to all residences between 33rd and 41st Avenues and between Granville and Knight Streets to notify them of meetings related to the Ridgeway design development. Meetings were also advertised through our standard news releases, City's web site and advertisements in the Vancouver Courier, Echo, Link and Voice. In addition, 5 billboards were posted along the route in September, 1995.

PUBLIC MEETINGS AND PRESENTATIONS

October, 1995 - Three introductory sessions were held at three locations along the pilot project route (October 24th, 26th, & 28th). Letters of invitation were mailed to all property owners. Staff provided an introduction and overview to the Greenways program and the objectives of the pilot project. Ideas were actively solicited. Over 100 people attended.

November, 1995 - Four workshops were held, two on two different days (3-5 & 7-9 on November 27th & 29th) at VanDusen Gardens Floral Hall. Letters of invitation were mailed to all property owners. Staff made a brief presentation followed by facilitated discussions around six themes. Other breakout sessions were held, workbooks and comment sheets were provided, and people posted comments directly onto an existing plan of the route. Approximately 100 people attended.

April 13, 1996 - An initial design concept was presented at City Hall to a focus group of residents most directly affected by the Ridgeway. 17 people attended.

April 20, 1996 - A public meeting was held at General Wolfe Elementary School to present the initial design concept, to answer questions and to respond to concerns or suggestions. 134 people registered.

May 25, 1996 - A detailed design concept was presented at City Hall to a focus group to allow them to express their opinions and concerns with the design. 23 people attended.

June 1, 1996 - A public meeting was held at General Wolfe Elementary School to present the detailed design to the general public. Comments and specific concerns were discussed and recorded. 108 people registered.

June 10, 1996 - The detailed design was presented to Park Board Commissioners.

June 27, 1996 - Council approved construction of the Ridgeway, except for two areas in contention, following delegations.

September 7, 1996 - A public meeting was held at Vancouver College with residents near VanDusen Gardens between Oak and Granville Streets to discuss their concerns. Notices were mailed to all property owners. Following the meeting, staff recommended the proposals between Oak and Granville Streets, except for the signal at Granville Street, not proceed.

September 7, 1996 - A public meeting was held at Riley Park Community Centre with residents near 37th Avenue and Ontario Street. Notices were mailed to property owners and hand delivered to rental suites. Following the meeting, staff recommended installing a traffic circle with bulges rather than a road closure of Ontario south of 37th Avenue.

October 22, 1996 - Council approved the staff recommendations regarding the Ridgeway design between Oak and Granville Streets and at the 37th Avenue and Ontario Street intersection.

ADDITIONAL PRESENTATIONS

Presentations to special interest groups were also held to seek input from various areas of expertise. These included the following:

- Vancouver City Planning Commission on April 8, 1996

- Heritage Advisory Committee on May 13, 1996

- Bicycle Advisory Committee on May 15, 1996

- Public Art Committee on May 27, 1996

- Disabilities Advisory Committee on June 6, 1996

ADDITIONAL INFORMATION

Update letters were sent to all residents along 37th Avenue in January, 1997 to inform them of the status of the Ridgeway construction and to let them know of other ways they may become involved, such as planting a tree on their own property or working with a public artist.

ROAD CLOSURES

Signage explaining the road closures with contact telephone numbers of Greenways staff was posted on-site when the temporary road closures were installed in February and March, 1997.

Thirty-one notification letters were mailed to interested parties for the July 8, 1997 Transportation and Traffic Committee meeting which considered the information report on the road closures.

Notices dated July 22, 1997 regarding reconsideration of the closure of 37th Avenue through Mountain View Cemetery by Council on September 9, 1997 were hand delivered to all residences between 33rd and 41st Avenues from Fraser to Main Streets and mailed to people who expressed an interest in writing or by signing a petition. (As of July 31, 117 notices were mailed; notices of the rescheduling to October 28, 1997 were also delivered by hand and posted in the newspapers.)

ADDITIONAL MEETINGS

Meetings were held with residents surrounding Windsor Street and 37th Avenue to plan, design and build a small play area and garden on a vacant City-owned lot at that location. The official opening of this community-developed greenway feature was arranged and held by surrounding residents on June 22, 1997.

SURVEY

A telephone survey was conducted by the Angus Reid Group in June, 1996 to assess the level of support for the Ridgeway and for the various components that affected traffic movement or parking. Of the 525 people within the area surveyed, 85% supported the proposal. (Of the 102 people surveyed on the closure of 37th Avenue through Mountain View Cemetery, 71% were in support, 20% in opposition, and 9% undecided.)

APPENDIX B

CONCEPTUAL DESIGN: RIDGEWAY AT MOUNTAIN VIEW CEMETERY

Excerpt from the report on the design and construction of the Ridgeway, approved by Council on June 27, 1996, related to the development of the road closure of 37th Avenue at Mountain View Cemetery:

"37th Avenue at Mountain View Cemetery will become a green street. It is a unique opportunity to create usable park-like space on the road to integrate the sections of the cemetery to the north and south and improve pedestrian access between them. Visibility into the cemetery will be improved and enhanced with artist-inspired landscaping, a water feature using stormwater run-off and seating to contemplate the views. Although no motor vehicle traffic will be permitted, the cycle path will allow police car access and surveillance as required."

(diagram)- (Design prepared by Guzzi Perry and Associates Landscape Architecture)

APPENDIX C

SUMMARY OF PUBLIC SUPPORT FOR AND AGAINST MAKING THE 37th AVENUE CLOSURE WEST OF FRASER STREET PERMANENT (As of October 10, 1997)
Letters of Support (including out of area and those without addresses)	111
Letters of Support (in area)	81
Letters of Opposition (including out of area and those without addresses)	5
Letters of Opposition (in area)	4
Petition Signatures in Support (including out of area and no address)	89
Petition Signatures in Support (in area)	29
Petition Signatures in Opposition (including out of area and no address)	82
Petition Signatures in Opposition (in area)	47
Number of petitions in Support	1
Number of petitions in Opposition	3

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(c) 1997 City of Vancouver