Agenda Index City of Vancouver

ADMINISTRATIVE REPORT

M. Zaborniak/7336

TO: Vancouver City Council
FROM: General Manager of Engineering Services and Director of Central Area Planning
SUBJECT: Downtown Streetcar
 

RECOMMENDATION


GENERAL MANAGER'S COMMENTS

The General Manager of Engineering Services and the Director of Central Area Planning recommend approval of A through D.

COUNCIL POLICY

… Council has priorities for transportation in the City which emphasize transit use;
… Council supports establishing and preserving streetcar corridors in the False Creek Area and the Downtown;
… Council has established that planning for Southeast False Creek as a demonstration project for an energy efficient community will include potential streetcar services; and
… That staff negotiate with CP Rail to secure rights for streetcar operation to Vanier Park across CP Rail's land.

SUMMARY

In July 1997 Council authorized a consultant study to determine alignment options for the Downtown Streetcar and to provide a cost analysis for the preferred alignment and system. Through an extensive public process, the use of computer modelling and technical analysis, various route options, preferred alignments, and phasing have been identified. Considerations included areas of high visitation, public preferences, potential ridership, and the results of a comparative cost/benefit analysis. The study concludes that, following the South False Creek line, the alignment from Science World to Waterfront Station is the best candidate for an initial phase. The other recommended routes are from Science World to the Roundhouse and from Waterfront Station to Stanley Park. Also identified are potential routes through the downtown.

The streetcar system is intended to accommodate a variety of users including residents, employees, and tourists. As such, the recommended routes are planned to provide increased accessibility between existing and developing neighbourhoods as well as with existing destination points. In addition, the streetcar could reduce the need for automobile access within the downtown. Public feedback did identify some concerns such as loss of curbside parking, capital costs of the streetcar compared to trolley buses, and potential impacts on vegetation or park space. However, overall feedback was extremely supportive.

All of the recommended streetcar routes around the perimeter of Downtown are projected to be high in terms of operating cost recovery, with the study indicating that the initial phase would recover approximately 100% of the $3.3 million operating cost. Funding for the capital cost for this section, expected to be $42.3 million, is assumed to be funded separately. Although the more central routes through the downtown core are less effective in terms of operating cost recovery (60-80%), they are seen as highly desirable by the vast majority of participants at the public meetings.

Before a streetcar system can be implemented, a number of issues and work items need to be addressed. The results of this study and the recommendations provided in this report will aid Council and staff in the future planning of the recommended streetcar routes.

PURPOSE

This report summarizes the results of a study undertaken to investigate the possible routes for a streetcar system in the downtown. Also presented are the results of a public process, a preferred route including phasing and future extensions, cost analysis, and the next steps to be taken.

BACKGROUND

In 1996, Council authorized the purchase of the CP Rail alignment, south of False Creek, between Cambie Street and Granville Street. The purpose of this acquisition was to provide a corridor for a unique opportunity to re-establish a continuous rail trolley system, eventually linking Vanier Park in the west to Science World in the east. This purchase was finalized and the City operated a demonstration project this summer, running a restored historic interurban streetcar between Anderson Street and Moberly Street.

Upon receiving the False Creek South Rail Line Study, Council instructed staff to explore extensions into the downtown and elsewhere, connecting locations such as Central Broadway, Chinatown, Gastown, the Port lands, Coal Harbour, Stanley Park, BC Place, Downtown, Vanier Park and the North Shore of False Creek. Council had previously approved incorporating transportation corridors into the planning of South East False Creek, Burrard Slopes, Coal Harbour, False Creek North and the Port lands. In addition, the Vancouver Transportation Plan adopted by Council recommends examining the feasibility of extending the False Creek streetcar to Stanley Park.

In July 1997, Council authorized a consultant study for the Downtown Historic Railway Alignment options and a contract was awarded to a consortium led by Baker McGarva Hart. The contract consisted of two main parts. The first part focussed on the identification and assessment of streetcar alignments in the downtown. The second part involved an economic analysis to determine financial projections and options for the preferred alignment and system. A public process was also undertaken with input sought from stakeholders, local authorities and the broader public.

DISCUSSION

Through the public process, the study identified areas of high visitation, looked at preferred linkages between origins and destinations, analysed potential ridership and provided a comparative cost/benefit analysis of the various options. Some route options were discarded while other route options were identified for further evaluation. More detailed analysis of the preferred route options were undertaken including a breakdown of ridership by employees, residents and tourists. Computer modelling was used to estimate ridership, and capital and operational cost estimates were factored in to determine cost recovery. The results were then reported back to the public and a preferred system and phasing was identified from the feedback received.

1. Key Findings

A question that has been raised repeatedly is "Who is the system for?" What the study has found is that it should be for a variety of users which include residents and workers who would use it for commuting, as well as Vancouverites and tourists who desire it for recreation needs. The study indicates that by promoting tourist ridership, revenue can be generated which would partially subsidize the other users of the streetcar system.

(i) Preferred Corridors

Through a variety of public meetings involving over 500 members of the public and a broad array of stakeholders, it was determined that a number of corridors were preferred by the participants as represented in Figure 1. Generalized routes within these corridors were then analysed from both a planning and engineering perspective to determine their value on a technical basis. It became evident through questionnaires and comments that both the public preferences and the technical analyses tended to support one another in regard to these generalized routes. Very little opposition was expressed, other than some general concernsabout noise, overall capital cost compared to trolley buses, and that the system was not being proposed for areas outside of the downtown. These issues are addressed later in this report.
Figure 1. Preferred Streetcar Corridors (Downtown Peninsula)

(ii) Evaluation Process and Summary Results

The next step in the study was to more closely evaluate potential alignments within these generalized routes. Approximately twenty alignments were analyzed and seven were deemed not to be worth pursuing due to either technical difficulties of construction (terrain, congestion, etc.), lack of ridership (compared to other options), or redundancy of other services (SkyTrain or BC Transit bus routes). This resulted in thirteen potential alignments that were analyzed in detail in terms of their cost and performance.

Computer modeling, with updated residential and employment inputs for build-out in the downtown to the year 2021, was used for the analysis. Input was also used from Tourism Vancouver database as well as data from Granville Island, Canada Place, and other tourism destinations. The model could then evaluate projected revenues and costs from all factors in order to determine how the various alignments could be expected to perform. Summary analysis of this evaluation is attached as Appendix A.


Figure 2. Streetcar Routes.

The conclusion of this analysis is that an alignment from Science World to Waterfront Station (see Figure 2) is the best candidate for an initial phase, following the South False Creek line. Capital costs of the system from Granville Island to Waterfront Station (Phase 0 and Phase 1) is expected to be approximately $42.3 million. Operation costs are expected to be $3.3 million/year with revenues estimated by the consultants at $3.4 million/year. Details are attached as Appendix B and C. An alignment from Science World to the Roundhouse would not be as cost recoverable as Phase One (88% as cost efficient as Science World to Waterfront based on ridership data from the 2021 model), but would be competitive enough to justify it as Phase Two. A future phase from Canada Place to Stanley Park is also projected to be high in terms of cost recovery, with the entire system as described above being over 92% relative cost recovery, based on the assumptions in the computer model.

When more central routes through the downtown are considered, more challenges are being faced in terms of congestion, terrain difficulties, competition with bus routes, curbside parking, and station locations. Potential routes through the downtown, while seen as being highly desirable by the vast majority of the participants in public meetings, would have a high capital cost but need to be studied further considering their potential to serve existing populations. It is hoped that once the initial phases to Waterfront Station and the Roundhouse are completed, and presumably successful, the difficulties of routing extensions through the downtown will be perceived as less of a problem. Several routes through the downtown are possible as indicated in Figure 2, and it is recommended that these route options be preserved and staff consider these routes when undertaking any land use or transportation changes in the downtown.

(iii) Public Feedback

The proposed streetcar routes and system were well received with a few specific concerns as follows. Potential loss of curbside parking was a concern of merchants, especially in areas such as Robson Street. Impacts on vegetation or park space along Quebec street was a concern of adjacent residents. Potential changes to the #50 (False Creek) bus route were a concern of False Creek residents. These issues need to be further addressed at the design stage.

2. Land Use Benefits and Impacts

One of the main goals of this study has been to determine cost-effective streetcar routes that implement City policy in terms of land use, development, and transportation. A goal of the Central Area Plan is "an accessible Central Area." Given the development of Downtown over the past decade and the next 25 years, additional transportation services are necessary to serve new areas. We now have a fairly complete picture of what the downtown may looklike in 25 years. It is therefore possible to consider connections and services between existing, developing, and future downtown neighborhoods.

The recommended streetcar routes are planned to provide accessibility between these neighborhoods. By serving a number of existing neighborhoods, such as Gastown, Victory Square, and Chinatown, stabilization efforts can be assisted. By serving a number of developing neighborhoods, such as False Creek North and Coal Harbour, previously preserved rights-of-way can be utilized to add transit in a low-impact manner. By selecting a number of future neighborhoods, such as the Port Lands and Southeast False Creek, transit can be planned in a detailed way from the start.

The recommended routes also take existing destination points into account, especially those under-served by transit now. Linking up destinations such as Vanier Park, Granville Island, the Stadium district, Chinatown, Gastown, Canada Place, and Stanley Park, achieves a "connectivity of places" that is not present today. At the same time, the streetcar system could reduce the need for automobile access to these destinations, while not significantly impacting existing transit services. As the system "builds out," it may be desirable to add connections to Downtown from outside of Downtown. For example, an opportunity may exist to connect a potential Clark Drive Skytrain station through the False Creek Flats and discussions are underway as part of the upcoming rezoning proposal for a high-tech industrial park in the Flats. Ongoing studies on land use and transportation will give us a clearer picture of what else is needed in the future.

To connect to the south shore of False Creek and the potential maintenance facility, it will be necessary to construct either the Science World-Roundhouse or the Science World-Waterfront phases before anything through Downtown. Although the consultant study recommends the Waterfront-Stanley Park phase next, it will not be possible for several years until Coal Harbour development is complete. In the meantime, Downtown extensions that would link Phase 1 & 2 could be the focus. This study has not developed these connections to a concept plan stage yet and further work would need to be undertaken if Council wished to see a different and accelerated phasing option through Downtown. The technical difficulties and capital costs would be significantly higher than around the perimeter of Downtown, but the "Downtown serving" function would also be significantly higher. However, this would mean competing with or replacing some of the Downtown trolley bus system. It will be necessary to prepare a cost/benefit analysis of the existing trolley bus system and any potential streetcar extensions Downtown.

3. Single Track and Double Track Systems

The consultant has proposed a segregated single track for much of Phase 1 and 2. This is different from the traditional types of streetcar systems that are found in Toronto or Portland, so a brief explanation of the systems is outlined below, as well as some of the pros and cons:

- a single track system would have streetcars operating in both directions on the same track.
- a passing track is needed for streetcars to bypass each other.
- capacity of the single track system is limited by the number of passing lanes. The consultant has indicated that a single track system will meet demand for at least the next ten to twenty years.
- some form of barrier or raised pavement would need to be used to define the single track right-of-way.
- the right-of-way would be provided by taking a portion of the street (the curb lane) or boulevard area in some cases.
- curb-side parking may need to be removed along streets where the right-of-way is in the curb lane.
- special signal phases would need to be provided at many intersections to accommodate the two-way streetcar in the curb lane.
- costs are reduced significantly if only one track is used (including both capital costs and long-term utility servicing costs).
- an exclusive right-of-way provides faster travel times and more reliable service; however, the speed of the streetcar will need to be relatively slow in many locations due to traffic conditions, parking entries, pedestrians, etc.

While staff acknowledge that there are potential benefits with a single track system and that single-track can evolve into double-track, there are issues such as the counter-flow aspect of the streetcar, which would need to be addressed in the detailed design stage. One issue is that modifications would need to be made to traffic signals to permit the counter-flow movement of the streetcars - a particular concern for left turns.

A double track system is being proposed for portions of the system. This system typically runs in traffic and can be designed to have signal priority at intersections. Streetcar stops are typically curb bulge stops or island stops in a double track system. Alternatively, if the streetcar runs in the curb lane, sidewalk stops can be used but curbside parking must be eliminated. Due to the high ridership in certain areas, a double track system is often needed. In addition, certain intersections do not have available road space and the streetcars need to run in traffic in order to maintain vehicular capacity and turning capability. The challengeis to keep the streetcar capacity high and the timing efficient through the use of traffic priority measures in this type of system.

4. Recommended Alignments

(i) Phase One Alignment

Starting from Science World, this route connects Chinatown, Gastown, and Waterfront station. As shown in the diagram, the proposal is for a single track system to be on Quebec and Cordova Streets, with a passing track on part of Columbia Street. This alignment was selected because it is direct, has fewer utilities, and has less traffic congestion than other adjacent routes. A connection to the ferry system is possible at the Science World dock.
Figure 3. Recommended Phase 1 Alignment

The consultant report suggests using the ±15 foot Quebec Street boulevard and sidewalk for the alignment by reducing the sidewalk to six feet and moving it into the boulevard adjacent to the street trees. While this proposal would work, both Planning and the Park Board feel that the west curb lane on Quebec Street is more appropriate for the alignment. However, the consultant has not reviewed this option for traffic impacts. Engineering feels that using the Quebec Street sidewalk and boulevard would have less impact on Quebec Street traffic and therefore further analysis of both options needs to be considered in the detailed design stage. The streetcar could either utilize the intersection or the traffic island at Quebec and Pacific Boulevard and then continue in the east curb lane north on Columbia Street. The Chinatown Historic Area Planning Committee (CHAPC) favours this routing for its proximity to Chinatown but are concerned about the impact of a station at the Keefer Triangle. The station location is therefore being shown as north of the Triangle, just south of Pender Street. A passing track would run in traffic between Pender and Hastings Streets.

An alternative alignment is shown on the west side of Columbia Street which may have less impacts on right turns off of Columbia and northbound traffic from Quebec Street onto Columbia. The potential stop at the Sun Yat Sen Gardens is not favoured by the CHPC due to the impact on the views to the garden entry and an alternative stop slightly north may need to be investigated. In addition, parking impacts are greater on the west side of Columbia and this is a concern of Chinatown merchants. Further analysis will be needed in the detailed design stage to determine the preferable option.

Increased capacity could be accommodated by adding a second track on Cordova Street. Alternatively, capacity could be increased by operating a westbound streetcar on Water Street, with the eastbound streetcar remaining on Cordova. This would be more expensive, but would provide more exposure to the sights in Gastown along Water Street. The single track on Cordova could remain on a segregated right-of-way, while the track on Water Street could run in traffic. Phase 1 would terminate in front of Waterfront Station which would be a major station and a layover point.

(ii) Phase Two Alignment

This alignment would use the same track as the Science World to Waterfront route as far north as the Pacific/Quebec intersection. From here it would follow Pacific Boulevard to Davie Street and terminate in front of the Roundhouse.

 Figure 4. Recommended Phase 2 Alignment

 

The consultant proposal is for the streetcar to travel along the south side of Pacific, with the north side as an alternative. Connections to the ferry system are possible at the Plaza of Nations and at the Davie street end. The streetcar would cross Pacific Boulevard under Cambie Bridge and travel within the median until Cambie Street. Between Cambie Street and the terminus, a double track system would need to be provided with the streetcaroperating in traffic for both westbound and eastbound operations. This enables the left-turn bay at Davie to be maintained to allow access from westbound Pacific to southbound Davie. The terminus would be on the Davie Street median north of the roundabout. However, there is also a unique opportunity to use the Roundhouse turntable and plaza. This would require a sidewalk crossing but it would provide a needed layover stop and utilize the turntable which was planned to be used by Engine 374 but is now not possible due to technical difficulties. Use of the turntable and plaza will require further study.

The Planning Department is concerned that the south curb route is awkward around the Cambie Bridge ramp area and has significant impacts on planned residential and park development east of the Cambie Bridge and Plaza of Nations by impacting development potential and stripping curb-side parking (see Appendix C). Both Planning and Park Board feel that the north curb lane could be a superior route. However, the consultant has not looked at this option in detail and Engineering feels the north curb lane would impact on vehicular movement and access around BC Place and GM Place. To this point, there have been plans and designs that have incorporated a station and tracks on the south side of PacificBoulevard, utilizing the Plaza of Nations site. A right-of-way has been established to provide space for these facilities. However, this issue requires further review and will be part of the detailed design stage.

(iii) Phase Three - Potential Downtown Extensions

The consultant has analyzed ridership and prepared a preliminary feasibility study for Downtown extensions. All routes shown are potentially feasible but vary somewhat in terms of cost effectiveness and practicality, with the Denman link probably the least feasible.

A detailed analysis of the costs and impacts of streetcar routes along these sections is not part of this study. However, these routes show potential opportunities for expansion of the system and before major changes to the streetscape or land use are made, the extensions shown on this plan should be considered. The routes shown could provide full coverage of the Downtown peninsula at a 300m walking distance. Public input has been favorable to these routes, but more detailed designs and discussions need to be undertaken to determine if any or all extensions should be pursued. In practical terms, these routes could happen sooner than the Stanley Park and Portside Loop routes, as the rights-of-way are available and construction could happen as soon as Phase 1 and 2 are complete. As noted previously, a comparison with existing trolley bus services would be necessary as part of further work.

Figure 5. Recommended Alignments to be Preserved for Potential Downtown Extensions

(iv) Phase Four - Waterfront Station to Stanley Park

A number of the planned street sections will need to be completed before this phase can occur. However, it was a popular choice of many of the participants at the meetings, since Stanley Park is the most popular tourist attraction in the Lower Mainland. The consultant analysis showed that once build-out occurs in the Coal Harbour area, this route would be heavily traveled by commuters as well as tourists.

The proposed route follows Cordova, Bute, Hastings, Cardero and the south side of Devonian Harbour Park, to the entrance of Stanley Park. A double track system is necessary due to high ridership projections and would be in the center lanes of the roadway, with a curb bulge station at Hornby and an island station at Bute Street. The streetcars would operate in trafficfrom Waterfront station to Nicola Street, where it would change to a segregated double track from Nicola to Cardero Street in the existing transit right-of-way with an island station near Nicola. A segregated single track section would then extend from Cardero, past the Bayshore with a sidewalk station at Denman and continue to Stanley Park with a terminus near the Chilco underpass.
Figure 6. Recommended Coal Harbour Alignment

(v) Portside Loop

The development of Portside Landing provides an opportunity to make a small extension of Phase 1 in order to provide a streetcar connection to the new convention center and Canada Place. The proposal developed by the consultant and City staff is to provide a clockwise, single track loop following westbound Cordova, northbound Howe, eastbound Canada Place Way, southbound on Cordova Connector, returning to Cordova to travel eastbound. There would be a curbside station on the south side of the new street in front of the proposed Trade and Convention Center. The streetcar would operate with traffic, towards the middle of the street. This loop would also provide a "turn around" capability for potential downtown extensions along Granville or adjacent streets. Service on this loop would target the tourist/recreationalist market between the Trade and Convention Center and Stanley Park.

This segment is the subject of a costing analysis that is underway to determine the potential City and developers share of construction costs which would result from incorporating the streetcar system into the proposed elevated roadways.

5. Future Connections to a Downtown System

At the public meetings there was a good deal of interest in having the streetcar expanded in a number of directions, and a few of the most common connections that were suggested are listed below:

- False Creek Flats (Finning site, etc.)
- Mt. Pleasant (perhaps along Main or Quebec Street)
- Broadway (along Cambie or Granville Street)
- the Arbutus rail corridor
- across False Creek (at Burrard Bridge or Granville Bridge)

Connections to the Finning site and possibly to Vancouver Community College area or a potential Clark Drive Skytrain station are probably the highest priority and are currently being discussed as part of the proposed high-tech urban industrial park centered on the Finning site. The connections to Mt. Pleasant and Broadway would allow the streetcar to serve a much wider area and could be looked at in detail in the future or as part of the Broadway Rapid Transit planning that is now underway. Use of the Arbutus rail corridor would provide access to many residents and destinations, but is not owned by the City and the cost of purchasing the corridor is unknown. A connection across False Creek would provide a direct link from Downtown to the Kitsilano/ Fairview Slopes area. However, it may be more realistic for southern connections to be made as part of rapid transit from Vancouver to Richmond and the airport, which the Provincial Government is considering.

6. Financial Implications

The capital cost is estimated to be $42.3 million for the Granville Island to Waterfront Station section. A variety of funding sources would be explored to fund this cost, including capital plans, senior levels of government, and the private sector. The operating costs are shown in Appendix B.

NEXT STEPS

There are a number of issues and work items that need to be completed before a streetcar system can be implemented. The next steps in the process are identified below:

- make the consultant's report available to the public;
- instruct staff to consider the proposed streetcar corridors when undertaking rezoning, development permit applications, area planning studies, or other projects that effect roads;
- investigate extensions into the center of Downtown such as the Granville Street corridor and the Robson Street corridor as part of the Downtown Transportation Plan;
- investigate future connections, such as to the Finning site;
- investigate the opportunities for a maintenance facility;
- investigate details such as integration with BC Transit routes and fare structure;
- pursue opportunities for cost-sharing and funding sources from the public and private sector, including the Provincial and Federal Government; and
- begin the detailed design of the section from Vanier Park to Waterfront Station and Science World to Roundhouse Community Center.

CONCLUSION

The Downtown Streetcar system could provide a mode of transit that will be complementary to and integrated with the bus, SkyTrain, SeaBus, ferries, and rapid transit systems. The City commitment to extend the False Creek line from Vanier Park to Science World will set a precedent in achieving this system. The consultant study that has been undertaken indicates that once this line is in place, there is a natural desire to extend the system north into Downtown. The first priority link is from Science World through Chinatown and Gastown to Canada Place. At the same time, another high priority is extending from Science World along Pacific Boulevard to the Roundhouse. A future high priority extension is from Canada Place to Stanley Park. Potential extensions through downtown may be desirable to serve existing residents, employees, and shoppers so a number of options should be preserved. These alignments could result in a downtown system that becomes an efficient people mover for employees, residents, and tourists. Linking this system to rapid transit alignments south of downtown is possible and should be investigated through future work. The results of this study and the recommendations proposed will aid Council and staff in planning along the proposed routes.

NOTE FROM CLERK: ELECTRONIC COPIES OF APPENDICES A-C NOT AVAILABLE - ON FILE IN THE OFFICE OF THE CITY CLERK.

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