Agenda Index City of Vancouver

ADMINISTRATIVE REPORT

TO:

Vancouver City Council

FROM:

Project Manager Vancouver Rapid Transit Office in consultation with the Co-Directors of Planning and the General Manager of Engineering Services

SUBJECT:

Phase 2 Rapid Transit - Commercial Drive West - Consultants’ Report

 

RECOMMENDATION

COMMENTS

POLICY

The Regional and City Transportation Plans recommend that Intermediate Capacity Transit Systems be provided along the Broadway Corridor and yet undetermined north/south corridor between the downtown and Richmond.

In November 1998, Council directed staff to retain a consultant to review transit technology and route options west of Commercial Drive.

PURPOSE

Earlier this year the City retained a consultant to study the rapid transit route and technology options for the Broadway corridor between the existing Broadway SkyTrain station at Commercial Drive and UBC. This work is now complete. The purpose of this report is:

· to review with Council the reasons for undertaking the study

· to provide Council with the results of the consultants’ work

· to recommend a public consultation process to inform the public and to solicit their input on the report

A representative of the consulting team will be in Council on December 14, 1999, to report on the key findings of their work and to answer questions.

If Council approves the public consultation process set out in this report, staff will report back to Council in early March 2000 with the results of the public consultation process and staff’s recommendations as to a preferred technology or technologies, routes and station locations for the Broadway Corridor from Commercial Drive to UBC. These recommendations will include a specific recommendation as to the western terminus for SkyTrain, to allow Council to respond to the request by TransLink and the Province that the City express its preference, by March 31, 2000, as to the end point for the SkyTrain extension west of Commercial Drive.

BACKGROUND

Decision to Expand SkyTrain

In June 1998 the Province announced a major expansion of the SkyTrain system. The first phase is an elevated track from Columbia Station in New Westminster to Lougheed Mall, along the Lougheed Highway and the Burlington Northern Sante Fe railway right of way to a station at Broadway and Commercial, then by tunnel under Broadway to Vancouver Community College (VCC) at Clark Drive in Vancouver. The first phase is commonly referred to as the “L - line”. This phase is shown in red on Appendix A.

The second phase of the SkyTrain expansion is in two sections: one extends north from Lougheed Mall to Coquitlam; the second extends west in a tunnel under Broadway from Vancouver Community College to an undetermined terminus further west along Broadway. The first and second phases together are commonly referred to as the “T-line”. The second phase is shown in green on Appendix A.

The Province, through a company called Rapid Transit Project 2000 Ltd. (“RTPO”), has responsibility for the design and construction of the SkyTrain extension.

At the time of the June 1998 announcement, RTPO indicated that they would immediately begin planning and design for Phase 1, with construction to begin in late 1999. The timing of the Phase 2 extensions was less certain, and involved, among other things, determining an end point for SkyTrain along Broadway.

The Study

Council recognized that the proposed SkyTrain extension under Broadway would be a major transit investment, one which would have a profound impact on the future of the City. In light of the importance of the decision, Council decided to undertake an independent review of the various route and technology options within the Broadway corridor. Given that construction of Phase 1 was scheduled to be underway by the fall of 1999, the study was to assume Phase 1 of the SkyTrain extension, New Westminster to VCC, would be constructed as proposed. Accordingly, the focus of the study is the technology options which are available further west, from the western terminus of SkyTrain Phase 1 at VCC, to UBC.

Although the Phase 1 SkyTrain extension terminates at VCC, Commercial Drive remains the key transfer point. For that reason, for the purposes of the study, the corridor was defined as starting at Commercial Drive, rather than VCC.

During the course of the study, RTPO approached the City with the possibility of a different alignment for the portion of the Phase 1 SkyTrain extension from Commercial Drive to VCC. Rather than a tunnel under Broadway to an underground station on the south side of VCC, RTPO presented an option of continuing SkyTrain in the Grandview Cut, under the Clark Drive Bridge, to an elevated station on the north side of VCC, continuing below grade to a second station on the Finning lands in the False Creek flats, returning to the Broadway corridor via a tunnel under Prince Edward Street. This alternate route is commonly called the “Northern Alignment”. In July of this year, Council expressed a preference for the Northern Alignment. For the purposes of the study, the consultant did not address the issue of the Northern Alignment. The consultant’s analysis begins at Commercial Drive.

In May 1999 City Council awarded a consultant contract to BRW, Inc., of Portland, Oregon. BRW is the lead consultant. UMA Engineering Ltd., Davidson Yuen Simpson Architects and Lloyd Lindley are members of the consulting team.

The objectives of the study were to:

The consultant was to prepare a report based on these objectives, by the fall of 1999.

During the course of the study, the Province and the newly formed Greater Vancouver Transportation Authority (now called “TransLink”) agreed on a formula to share the cost of the SkyTrain extension.

Cost Sharing between the Province and TransLink

Prior to the decision by the Province in June 1998 to expand SkyTrain, regional policy and planning contemplated a light rail system, rather than SkyTrain, within the Broadway/Lougheed corridor. The cost of the proposed SkyTrain expansion was estimated to be in excess of $2 billion - beyond the financial projections that formed the basis for the negotiations between the Province and the GVRD around the creation of TransLink.

TransLink and the Province entered into negotiations as to the effect of the decision to build SkyTrain on the cost sharing arrangements between the Province and TransLink. These negotiations resulted in an agreement in June, 1999, called the “Negotiator’s Agreement on Cost Sharing and Construction of SkyTrain Extensions”, commonly called the “Negotiator’s Agreement”.

The Negotiator’s Agreement provides as follows:

· TransLink will pay $650 million on the later of December 2005 or revenue service on the Coquitlam extension

· the Province will pay for the SkyTrain “L-line”, from New Westminster to VCC and that portion of the “T-line” extension to Coquitlam

· in addition, the Province will pay 67% (TransLink will pay 33%) of the cost of SkyTrain Phase 2 (underground) from VCC to Granville Street so long as SkyTrain is the chosen technology. The Province will not pay for light rail or rapid bus

· any SkyTrain extension beyond Granville Street will be fully funded by TransLink

As to the a western terminus of Phase 2 SkyTrain, the Negotiator’s Agreement provides:

“After the cost sharing is determined, the parties, in consultation with the City, will make good faith best efforts to determine by March 31, 2000, the endpoint for the proposed extension to the west using SkyTrain technology. This determination will give full consideration to the results of the City of Vancouver study.”

The request from the Province and TransLink to the City to express a preference for a route and technology option by the end of March remains outstanding. To assist Council in making a decision, staff propose to take the consultant’s work to the public for feedback.

While the consultant was aware of the Negotiator’s Agreement and the stipulation by the Province that it will only contribute to rapid transit west of Commercial Drive if the technology is SkyTrain, it did not affect the consultant’s work. The terms of reference for the consultant were to evaluate the technology options, and the ability of those options to achieve the transportation and planning objectives for the Broadway corridor. While the Negotiator’s Agreement may have an impact on Council’s ultimate decision, it was not immediately relevant for the consultant’s work.

THE CONSULTANTS’ REPORT

Study Process

When it approved the Phase 2 study, Council instructed staff to seek cost sharing from the Province and TransLink. RTPO and TransLink agreed to participate. Each contributed 25% of the cost; the City paid the remaining 50%.

The study was administered by a Steering Committee, the composition of which reflected the participation of the three sponsoring agencies:

City of Vancouver (2 members): General Manager of Engineering Services and Director of City Plans
TransLink (1 member): Senior Vice President, Planning and Service Contracts
RTPO (1 member): Director of Systems Design

In addition, there were two independent advisors to the Steering Committee: Martin Crilly and Geoff Larkin. Both are very experienced in transportation planning, but not otherwise involved in the SkyTrain extension project. Martin Crilly is a transportation consultant residing on Vancouver Island. He was Project Director for Transport 2021, the Regional Transportation Strategy. Geoff Larkin is the principal of a Portland consulting firm. He has extensive experience in transportation planning and inter-governmental negotiation. The Project Manager Rapid Transit Office served as Chair of the Steering Committee.

The Steering Committee received advice and counsel from a Technical Committee comprised of representatives from TransLink, RTPO and City engineering and planning staff.

Consultant’s Report

Appendix B is the executive summary of the consultant report. Copies of the full report are available from the City Clerk’s office.

The independent advisors have confirmed in a letter from them to the three sponsoring agencies (included as Appendix C), that in their view the consultant’s report is technically sound and presents fairly the relative merits of the various options considered in the report.

Staff recommend that Council receive for information, the findings and conclusions of the consultant as summarized in the executive summary, and that the public be made aware of and have an opportunity to comment on the consultant’s report.

PROPOSED PUBLIC CONSULTATION PROCESS

Staff propose that the public consultation process begin immediately and be complete in early March 2000. Given the holiday season, the public consultation process will begin in earnest in early January with a widely distributed flyer and a City wide symposium, and continue through January and February. Two months is a short period. However, in order to provide TransLink with timely advice as to Vancouver’s preference as to the end point for SkyTrain (determination to be made by March 31, 2000), staff will have to report the outcome of the public process to Council by no later than March 15, 2000. As outlined below, while short, the public consultation will be very intense, with numerous opportunities for the public to participate.

As a co-sponsor of the study, TransLink has agreed to participate in the process with the City. Their contribution will consist of TransLink public consultation/communication staff assisting City staff with the development of the program for the public process and with certain elements of its implementation. The RTPO will also be invited, as a co-funder of the study, to participate in the public process.

The public consultation process has three key objectives:

· to inform the public of the study and the consultant’s findings and conclusions

· to allow the public an opportunity to ask questions of the consultant

· to gather the public’s opinion as to the various technology options outlined in the consultant’s report - and whether the cost sharing formula affects their view

To achieve these objectives, staff have drafted the program and schedule attached as Appendix D.

The key elements of the program are as follows:

1. Distribution of flyers (coordinated with newspaper advertisements and press releases) to homes and businesses along the corridor, libraries, community centres, schools and other area organizations informing the public of the key findings and conclusions of the consultant. The initial flyer would be followed by a second flyer/questionnaire to provide an opportunity for the public to express a written opinion on the consultant’s report, issues and priorities.

2. A symposium in January to provide a City-wide forum for the consultant to present the report, and for discussion, debate and questions.

3. Community open houses and facilitated workshops to allow additional opportunities for the public to discuss the consultant’s report in more detail, and provide comment.

4. Meetings with key stakeholders, including VGH, UBC, business and residents’ associations along the corridor.

5. Council Report with results of public consultation to date and draft recommendations to Council; opportunity for presentations by the public to Council.

In addition, the consultation process may involve written or telephone surveys, and surveys of transit riders.

The consultant will play a key role in the public process. In addition, staff propose that the independent advisors to the Steering Committee, Geoff Larkin and Martin Crilly, participate in key events.

It is important to note that this study, and the public consultation process, is a general review of the technology options for the Broadway corridor, and the costs and benefits of each. Prior to implementing the preferred technology, the City, RTPO and TransLink will have to undertake a thorough planning and design process, which will involve extensive public consultation.

FUNDING

In November 1998 Council approved the City Rapid Transit work program and budget. This work program and budget anticipated a preliminary start on Phase 2 planning. In addition to the $200,000 for the study, Council approved $230,000 for Phase 2 public consultation, recognizing that additional funds would be required to achieve the same level of planning and public involvement as was proposed for Phase 1.

Most of these funds are available. This is because, pending the completion of the consultants report, the City has done a limited amount of planning work for Phase 2. Staff do not anticipate that additional funds will be required for this part of the public consultation process. As noted above, the detailed planning and design phase will require additional public consultation, and consequently, additional funds.

SUMMARY

The Phase 2 study of the rapid transit route and technology options for the Broadway corridor between Commercial Drive and UBC is complete.

The consultant’s report is submitted to Council for information, pending input from the public. Staff have proposed a public consultation process to inform the public and to solicit their input on the consultant’s work.

Staff will report back to Council in early March 2000 with the results of the public consultation process in order for Council to advise TransLink and the Province as to the City’s technology preference, and an end point for SkyTrain west of Commercial Drive.

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