GMC Feasibility 03 13 06

North Fraser Perimeter Route Mitigation Options Analysis City of New Westminster Preliminary Draft 2 March 10, 2006

City of New Westminster

Wayne Wright Mayor Tim Whitehead Director Planning & Development Services Mark Allison Lance Berelowitz Roger Emanuels Leslie Gilbert Steve Jones Steven Lan Claude Ledoux Jim Lowrie Stephen Scheving Lisa Spitale

Project Team

CITY OF NEW WESTMINSTER Mayna Vancaillie Planner Development Services Department

CONSULTANTS Lloyd Lindley Lloyd D. Lindley, ASLA Siegfried Fassmann DMJM Harris

CONTENTS Introduction Case Studies Process Policy Objectives Budget Estimates (to be included) Evaluation Criteria

Context History Land Use, Parks and Open Space Transporation and Parking Urban Design Challenges

Options Option 1 Option 2 Option 3 Option 4 Option 5

Recommendations Feasibility Evaluation Criteria Preliminary Recommendations Phasing Strategy A: Long Tunnel Phasing Strategy B: Full Encapsulation Next Steps

Appendix Truck Delay Table Case Studies

1 4 5 5

6 6 6 6 7 8

9 12 22 30 40 46

53 54 54 55 55 56 57

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INTRODUCTION

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Introduction The North Fraser Perimeter Route Mitigation Options Analysis is in response to the City’s active work to concentrate a large share of local housing and employment growth in the Downtown in keeping with its role as a Regional Town Center in the Greater Vancouver regional growth strategy. Today, the region’s major goods movement corridor operates on East and West Columbia and Front Streets, creating a barrier between Downtown and new riverfront development. It also limits pedestrian and bicycle access to open space opportunities on the Fraser River waterfront.

New Westminster is at the heart of the greater Vancouver metropolitan area once serving as the capitol of British Columbia. Its early beginnings centered on the Canadian Pacific Railroad and an active working waterfront and harbour on the Fraser River. The remnants of New Westminster’s industrial and shipping past remain today with freight rail and heavy trucking following the traditional routes to and from the Barard Peninsula and west coast ports. North of Front Street is the historic downtown district with an impressive cross section of architecture that represents the heritage and culture of New Westminster since the early beginnings of the province.

Capacity along this corridor is expected to increase as a result of improvements planned under the Provincial Gateway Initiative and the Greater Vancouver Transportation Authority’s Three Year Plan and Long Range Outlook. Competition between the goods movement corridor’s heavy truck and rail traffic and regional and local pressure to accommodate high density, mixed use neighborhood development motivated the City to analyze options for mitigating future increases in traffic while removing noise, poor air quality and neighborhood severance disbenefits.

A major goods movement corridor between the Fraser River waterfront and Downtown on and parallel to Front Street is an essential regional trucking and rail link serving the country’s largest volume import and export trade. New Westminster is also at a regional freight cross roads of the Trans-Canada Highway and the North Fraser Perimeter Route and a major Fraser River freight railroad that provides access for eastbound and westbound rail traffic. Combining truck and rail freight movement, New Westminster and the North Fraser goods movement

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corridor has the highest volume of freight to and from ports of the greater Vancouver metropolitan region. Trucks represent 63% of the midday traffic with an estimated total of 5,000 to 7,500 trucks per day on Front Street. Freight rail traffic is equally heavy with up to 60 trains per day. Assuming that no trucking destinations are between Highway 1 and West Columbia at 5th Street, trucks are traveling one-half mile out of direction further than with a more direct route. The one-half mile out of direction travel represents approximately 3,750 miles per day, nearly 950,000 trucking miles per year by 1.9 million trucks annually.

Project study area

4th Street

In addition to the heavy volume of trucks and trains that rely on this route, there is an at grade crossing of the railroad at Front and 4th streets. This grade crossing appears to contribute to the inefficiencies of this route by causing significant trucking delays which exacerbate poor air quality and the amount of lost trucking time.

Columbia Street Front Street

Railroad Lines

Railroad and Front Street Grade Crossing

At the same time, New Westminster’s responsibility as a Regional Town Center in the Greater Vancouver regional growth strategy is to absorb metropolitan jobs and housing growth. New Westminster is the second largest center for financial services in the region. Downtown has spectacular views overlooking the Fraser River and beyond to Surrey. SkyTrain provides regular downtown service at two stations within two to three blocks of the waterfront.

Downtown New Westminster is targeted to absorb 250,000 square feet of office space, 140,000 square feet of retail and service and 4,800 residential housing units between 2003 and 2021. The waterfront between 2nd and 8th Streets represents approximately 8 acres of underdeveloped property and is one of the largest and most attractive development sites in the City. This area represents the potential to absorb nearly all of the Downtown sector growth. Over one third of the targeted residential units and office space as well as approximately 125% of the targeted retail/service space are currently being reviewed by the City.

Recently, two major projects that propose to add approximately 1,700 residential units, 86,000 square feet of commercial and 174,000 square feet of retail uses will straddle Front Street and the rail line. Significant open space and esplanade improvements are proposed with these two projects which will likely increase the pedestrian, bicycle and vehicle demand to cross Front Street and the railroad at 8th and 6th Streets. In view of these proposed developments and a significant amount of underdeveloped riverfront property between 6th and 4th Streets (8 acres +/-), access for cars, pedestrians and bicycles and mitigation of air quality and noise from the Front Street corridor is essential to achieving the New Westminster vision for livability and an active, vital and connected waterfront.

Following is a brief contextual analysis and an urban design diagram that provides the framework for 5 mitigation options for Downtown between McBride and 10th Street along Front Street. The mitigations options consider development opportunities presented by implementing mitigation measures and strengthening connections to the Waterfront.

At grade railroad crossing at Front and 4th Streets.

Development Concept between 8th and 10th Streets and Carnarvon and Columbia Streets.

Development Concept between 8th and 6th Streets south of Front on the Fraser Riverfront.

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Case Studies Competing interests between transportation and livability are common tensions found in most cities. Some cities have balanced these competing interests by encapsulating existing highways and railroads while others have relocated transportation system elements into underground tunnels. Oslo, Norway and Boston held many of the same urban values as New Westminster and invested in encapsulation and tunneling projects that balanced the critical need for mobility while enhancing and preserving livability, cultural heritage and their historic architectural treasures.

Portland, Oregon explored encapsulating the Interstate-405 (I-405) corridor in downtown. The vision was to cap the existing depressed freeway and reconnect 2 historic Central City Districts - the Downtown and Goose Hollow Neighborhood districts. Potential new development area and much needed open space to serve businesses, the neighborhood and Portland State University which is Portland’s largest urban university.

A tunnel ring road system was developed to preserve the historic architecture from 1100 urban scale and form of Oslo.

Tunnel alignment

A surface highway separated the State House and Downtown Oslo from its waterfront. The Tunnel alignment shown above illustrates the route that reaches under some of the City’s oldest and most culturally and historically significant areas.

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The “Big Dig” underground highway and railroad system was essential to preserving the heritage of Boston and the country.

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An extensive tunnel system provides the necessary transportation links through downtown Boston while preserving the livability and heritage of the center of the City.

Process •

Meets the current and future (15-20 Years) functional demands of trucking and freight rail to and from western ports

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Meets or exceeds local and national air quality standards

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Reduces and maintains noise levels below local and national noise impact standards for national highways and railroads in neighborhood areas (55 decibels)

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Enhances and preserves views and view corridors from designated view points

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Reconnects upland Downtown with the riverfront creating opportunities for a variety of people oriented places to accommodate the expanding local residential population

• The parkade, GMC, Front Street, railroad and conditions caused by heavy truck and train traffic create a significant barrier between downtown and potential waterfront open space and residential development opportunities.

Strengthens commercial, retail and restaurant uses on 8th, 6th, and 4th Streets

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Provides the most cost efficient and affective options that balance transportation and land use

Evaluation Criteria

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The following eight evaluation criteria are based on the project objectives and are used to evaluate each option.

Maximizes development potential by creating new developable lands

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Provide access to existing buildings that face Front St.

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Balances physical improvements with costs and City objectives

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Eliminates truck and train grade crossing at Front and 4th Streets

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Optimizes project phasing to minimize construction impacts

An initial site visit included an overview of the issues and challenges and provided a forum for City staff to describe the scope of the project from various points of view. The process was inclusive of City departments through conducting two full day workshops with staff and management. During the initial workshop, staff reviewed case studies (Oslo, Norway; Portland, Oregon; Boston, Massachusetts; and Atlanta, Georgia), the project context and five conceptual options of different mitigation techniques.

The second workshop was structured for review and comment on the draft report including refined options, costs and feasibility of the various mitigation options. It also included review and comment on recommendations and project phasing.

Policy Objectives A compilation or relevant goals, objectives and initiatives from the Livable Region Strategic Plan, the 2005-2007 Three-Year Plan & TenYear Outlook and the Downtown New Westminster Action Plan provided the basis for creating project specific objectives and evaluation criteria for analyzing options. The North Fraser Perimeter Route Mitigation Options Analysis considers the following objectives: •

Preserve and enhance the functions of the North Fraser Perimeter Route for regional and national goods movement.

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Improve air quality to meet or exceed standards for sustainable livability.

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Mitigate truck and railroad noise in the Front Street corridor.

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Reduce freight, rail and truck conflicts.

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Preserve and enhance views and view corridors from downtown to the river.

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Reconnect the downtown to the river’s edge by creating people friendly links across Front Street and the railroad and creating places that reflect New Westminster’s cultural and historic identity.

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Identify costs for multiple phases of mitigations and improvements.

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Determine construction feasibility and construction impacts.

The underdeveloped waterfront wharf presents an opportunity to strengthen the commercial and retail viability of New Westminster while achieving regional growth and livability objectives.

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Context Brief History New Westminster is a long established city with a deep historic and cultural heritage dating to the founding of British Columbia’s economic base and provincial government. Over the past 146 years, it has been at the transportation crossroads of the province and the metropolitan region. The traditional transportation patterns established during New Westminster’s early years exist today and influence the City’s future development as it strives to meet the expectations of a Regional Town Center.

While the historic transportation patterns remain, the remnants of a heavy industrial working waterfront provide challenges and opportunities fro reactivating the abandoned wharves.

Land Use, Parks and Open Space Recent planning efforts have placed the focus of New Westminster’s vision on the waterfront. Land use designations have evolved to address regional and local growth goals. Parks and open space concepts reinforce connections to the shoreline while historic preservation and smart growth strategies emphasize the importance of the river to the City’s livability, cultural enhancement and strength of its business core.

Need correct map to illustrate land use.

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Transportation and Parking Central to the City’s goals and objectives of promoting Downtown’s economy is the transportation and parking network. And central to Downtown is the Front Street Corridor which is also part of the provincial and metropolitan highway system. Front and Columbia East and West are designated Major Regional Arterials and Truck Routes that link Highway 1 and Marine Way through New Westminster.

McBride is an intersecting Regional Arterial and Truck Route that links Front and Columbia Street East with 10th Street and Burnaby to the north and Surrey to the south via the Patullo Bridge. Queensborough Bridge routes truck traffic from the Front Street Corridor south to Delta via the Annacis Connector. Approximately 7,500 trucks per day use Front Street to access distribution points.

Historic Resources Area

SkyTrain travels east and west through Downtown serving 8th and 4th Streets between Columbia and Carnarvon. Both stations are approximately two blocks north of the waterfront.

A complete bicycle and pedestrian network links civic destinations, parks and the waterfront.

The Front Street railroad lines were originally established in 1887 and serve local terminals, yards, western ports and greater Canada. Two rail lines provide regular daily service through Downtown with 30 to 60 east/west trains per day with 80% in the eastbound direction. There is an existing grade crossing conflict near 4th and Front Streets where trucks experience significant delays.

Downtown is served by on-street parking in all areas. According to the 2004 Retail Impact Assessment for Columbia Street, on average, onstreet parking on Columbia and associated side streets is at capacity.

To supplement Downtown on-street parking in the mid-1960’s, the City built a 3-storey parkade which today holds approximately 769 parking spaces. The parkade is essential to the vitality of Downtown businesses. A 1999 Downtown Parkade Study by IBI GROUP recommended the existing structure had reached the end of its life cycle and should be rehabilitated and maintained until a new replacement becomes financially feasible. The report further recommends a minimum of 600 parking spaces with possibly up to 925 parking spaces are needed on Front Street. The report suggests a phased project that would cover Front Street and the railroad and would provide noise and air quality features to mitigate transportations impacts of the truck and rail corridor. The concept also would provide vehicle pedestrian and bike connections to the river with a variety of 6

Open Space, Parks and Views

Transportation

urban spaces.

Urban Design The urban design framework diagram builds upon significant previous work. Envisioning a tunnel system that enables complete connectivity between Downtown and the waterfront helps expand urban development possibilities. Green streets, a continuous riverfront esplanade, SkyTrain and Columbia Street create layers of infrastructure that direct urban growth toward the river. A major downtown gateway between 8th and 10th at Columbia and Front reinforces the identity of downtown.

The elimination of the Front Street and railroad barrier and an opportunity for three major attractors on the water would help activate the waterfront as well as Columbia Street, SkyTrain station areas, 6th Street and Downtown in general. The concept reinforces the Market and Discovery Center by adding significant active uses on the river at the end of 6th and 4th Streets. Uses might include a Lacrosse facility, entertainment or destination meeting and conference center. In any event, right-of-way should be preserved for future commuter rail or streetcar transit.

The concept also envisions extending the commercial and retail uses from Columbia to the river on 8th, 6th and 4th Streets creating a series of pedestrian loops between destinations. Front Street would become a viable green street with active uses and access to waterfront properties.

With the long tunnel option, nearly all of inner New Westminster from Highway 1 to Columbia Street West would enjoy convenient and comfortable access to and along the Fraser River.

Gateway Green Streets

Legend

Parks and Open Space

SkyTrain Stations

Full or partial encapsulation would strengthen connections to the river from upland areas and contribute to the urban design framework. But even with extensive mitigation measures, New Westminster would continue to experience the barrier effects of the North Fraser Perimeter Route.

Tunnel Alignment

Downtown District

Intersection Improvements

Waterfront Esplanade

Views Columbia Street Improvements Major Attractor

Major attractors like Seattle’s EMP and Boston’s Theatre in the Commons help enliven the waterfront and provide a variety of activities for residents and visitors.

A waterfront sports field could provide activities that support restaurants and pubs.

Continuous storefront uses should face both sides of 4th, 6th, and 8th Streets creating a vital link to the waterfront.

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Challenges Following is an outline of existing challenges where there are conflicts between City goals and objectives, transportation modes and residential commercial and development proposals.

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The “no growth” transportation policy provides a natural cap on traffic increases through Downtown.

However, stop and go traffic at the grade crossing between Front Street and the railroad as well as stop control and traffic signals affect travel time and increase noise and air pollution.

•

The significance of the North Fraser Perimeter Route to the region and the province is such that it must remain in New Westminster in some form in the future.

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Current volumes of truck and rail traffic produce significant air quality concerns as residential riverfront and upland development encloses the Front Street corridor and more people begin living in the area.

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The grade crossing at about 4th and Front streets creates a conflict between trucks and trains and adds a significant delay to freight truck movement.

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The continuous volume of trucks and trains and the gap between Columbia Street and the blank walls of new parking structures increases the psychological barrier between Downtown and the Waterfront and exacerbates noise impacts.

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Spectacular local views of the river are interrupted by the parkade and the high volume of truck and rail traffic on Front Street.

•

Because of few connection points over or across the existing Front Street corridor there are limited opportunities to create a strong connection between Downtown and the riverfront.

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New Westminster is designated a Regional Town Center which is a regional growth strategy to concentrate high density commercial and residential growth within available urban areas near high level transit access while protecting the Green Zone. The New Westminster waterfront contains significant underdeveloped area for residential and Green Zone development that is within convenient walking distance of two SkyTrain stations and regular bus service. SkyTrain and much of the underdeveloped waterfront property are separated by the Front Street corridor.

•

New residential development is pending and likely to occur within the next 5 years. Interim connections and mitigation measures are being considered to enable development while increasing the inhospitable quality of Front Street and the historic building resources that line the street’s frontage. The net result of these actions would create a trench between the proposed LARCO parking structure podium and the under utilized lower level of historic buildings on the north side of Front street. The trench would trap noise and pollutants from trucks and trains reinforcing the perceived barrier of Front Street and potentially degrading the viability of the historic properties.

•

Any encapsulation solution that reconnects Downtown to the Waterfront will have significant cost and will likely prevent future expansion of roadway or rail facilities. Over time, as development proceeds, this would likely force future administrations to revisit this same issue for east and west stretches of the Fraser River and alternative routes for freight movement.

•

Because of limited work area and the need to keep truck and rail traffic moving, significant improvements to encapsulate or make surface enhancements and mitigations will have construction impacts on new development, historic building protection, Downtown businesses, freight

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OPTIONS

GOING TO THE RIVER

GOING TO THE RIVER

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Options Option I:

Full Encapsulation at grade

Option II: Full Encapsulation with depressed roadway and encapsulated railway at grade

Option III: Relocated roadway to a tunnel and encapsulated railway

Option IV: Relocated roadway and railway to a tunnel

Option V: Surface alignment with sound and visual mitigation

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OPTION I FULL ENCAPSULATION AT GRADE

ATTRIBUTES Encloses Front Street and two remaining railroad lines Provides east and west one-way streets at or near podium level Encloses the low level of buildings fronting Columbia Street Access is on Begbie, 6th and 4th Streets Provides three major attractors • Public market and Discovery Center • Central indoor/outdoor entertainment and dining destination • Lacrosse sports field with one or two parking levels Provides noise walls east and west of the encapsulation

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Creates east and west gateway features Suggest extending “finger of riparian green” northbound on 8th, Begbie, 6th, and 4th Removes the existing Parkade Potential to provide approximately 76- parking spaces Potentially adds 27 feet for expansion of waterfront development or approximately 50,000 S.F. Potentially adds 86,000 S.F. of developable area over the encapsulation east of 6th Street

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OPTION I FULL ENCAPSULATION AT GRADE I-a: Between 8th and 10th Streets Encapsulation area

Public spaces at podium level can activate upper levels.

Passive spaces at podium level can take advantage of spectacular views.

“Green roofs� can provide a link between the ground level and upper levels

Stormwater feature Alfeld Germany

Exterior stairs help orient visitors and enable users to enjoy river and city views.

Urban town houses Vancouver, BC

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Stairs, ramps with stone facing, Getty Museum

Pedestrian oriented edge at podium level. Native stone can communicate identity, heritage and permanence.

Street grade below podium level.

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OPTION I FULL ENCAPSULATION AT GRADE I-a: Between 8th and 10th Streets

Section at 10th Street looking east

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OPTION I FULL ENCAPSULATION AT GRADE I-a: Between 8th and 10th Streets

Section at 8th Street looking west

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OPTION I FULL ENCAPSULATION AT GRADE I-a: Between 8th and 10th Streets

Section at 6th looking west

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OPTION I FULL ENCAPSULATION AT GRADE

Section Front at Church looking west

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OPTION I FULL ENCAPSULATION AT GRADE

Section 4th at Front looking west

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OPTION I FULL ENCAPSULATION AT GRADE I-b: Between 8th and 10th Streets

Encapsulation area

Low “sound walls” can be integrated into the landscape.

Low “sound walls mitigate rail wheel noise by keeping the sound within the guideway.

Parks and open space provide separation between railroads, big streets and residents.

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MOCA podium open space, Los Angeles

Stormwater feature Alfeld Germany

Pedestrian oriented edge at podium level. Native stone can communicate identity, heritage and permanence.

Street grade below podium level.

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OPTION I FULL ENCAPSULATION AT GRADE I-b: Between 8th and 10th Streets

Section at 10th Street looking east

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OPTION I FULL ENCAPSULATION AT GRADE I-b: Between 8th and 10th Streets

Section looking west at McNeely

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OPTION II FULL ENCAPSULATION WITH DEPRESSED ROADWAY AND ENCAPSULATED RAILROAD

have playfield on deck) Provides noise walls east and west of the encapsulation Creates east and west gateway features Suggest extending “finger of riparian green” northbound on 8th, Begbie, 6th, and 4th Removes barrier of the existing Parkade Potential to provide approximately 760 parking spaces Potentially adds 27 feet for expansion of waterfront development or approximately 50,000 S.F. Potentially adds 86,000 S.F. of developable area over the encapsulation east of 6th Street

ATTRIBUTES Encloses two remaining railroad lines Locates the Goods Movement Corridor below grade Creates a festival street on Front Street for events and local businesses Exposes lower level of buildings fronting Columbia Access is on Begbie, 6th and 4th Streets Provides three major attractors • Public market and Discovery Center • Central indoor/outdoor entertainment and dining destination • Parking structure with potentially 760 parking spaces (could March 13, 2006

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OPTION II FULL ENCAPSULATION WITH DEPRESSED ROADWAY AND ENCAPSULATED RAILROAD

Existing Development Existing Warehouse East Columbia eastbound

West Columbia westbound

SkyTrain

Railroad

Goods Movement Corridor

Section II A West portal looking east

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OPTION II FULL ENCAPSULATION WITH DEPRESSED ROADWAY AND ENCAPSULATED RAILROAD

Depressed GMC

Section II B Front at 10th Street

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OPTION II FULL ENCAPSULATION WITH DEPRESSED ROADWAY AND ENCAPSULATED RAILROAD

Section II C

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OPTION II FULL ENCAPSULATION WITH DEPRESSED ROADWAY AND ENCAPSULATED RAILROAD

Section II D Front at 8th Street

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OPTION II FULL ENCAPSULATION WITH DEPRESSED ROADWAY AND ENCAPSULATED RAILROAD

Parking

Depressed GMC

Section II E Front at Church

Festival Street on Front with alternative building orientation

Festival Street at Front Street

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OPTION II FULL ENCAPSULATION WITH DEPRESSED ROADWAY AND ENCAPSULATED RAILROAD

Section II F 4th Avenue at night

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OPTION II FULL ENCAPSULATION WITH DEPRESSED ROADWAY AND ENCAPSULATED RAILROAD

Section II G West portal looking east

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Section A East portal looking west

OPTION III RELOCATE ROADWAY TO A TUNNEL AND ENCAPSULATE THE RAILROAD

Creates east and west gateway features Suggest extending “finger of riparian green” northbound on 8th, Begbie, 6th, and 4th Removes barrier of the existing Parkade Potential to provide approximately 760 parking spaces Potentially adds 27 feet for expansion of waterfront development or approximately 50,000 S.F. Potentially adds 86,000 S.F. of developable area over the encapsulation east of 6th Street Avoids potential construction conflicts with new 72-inch sewer in Front St. Avoids potential special design for high groundwater

ATTRIBUTES Encloses two remaining railroad lines Locates the Goods Movement Corridor below grade Creates a festival street on Front Street Exposes lower level of buildings fronting Columbia Access is on Begbie, 6th and 4th Streets Provides three major attractors • Public Market and Discovery Center • Central indoor/outdoor entertainment and dining destination • Parking structure with potentially 760 parking spaces (could have playfield on deck) Provides noise walls east and west of the encapsulation March 13, 2006

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OPTION III RELOCATE ROADWAY TO A TUNNEL AND ENCAPSULATE THE RAILROAD

Section III A looking east from 10th Street

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OPTION III RELOCATE ROADWAY TO A TUNNEL AND ENCAPSULATE THE RAILROAD

Section III B

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OPTION III RELOCATE ROADWAY TO A TUNNEL AND ENCAPSULATE THE RAILROAD

Section III C at 8th Street looking west

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OPTION III RELOCATE ROADWAY TO A TUNNEL AND ENCAPSULATE THE RAILROAD

Section III D Front at 6th Street looking west

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OPTION III RELOCATE ROADWAY TO A TUNNEL AND ENCAPSULATE THE RAILROAD

Section III E Front at Church Street looking west

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OPTION III RELOCATE ROADWAY TO A TUNNEL AND ENCAPSULATE THE RAILROAD

Section III F 4th at Front

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OPTION III RELOCATE ROADWAY TO A TUNNEL AND ENCAPSULATE THE RAILROAD

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OPTION III RELOCATE ROADWAY TO A TUNNEL AND ENCAPSULATE THE RAILROAD

Long Tunnel

Short Tunnel

North Fraser Perimeter Route

4,700 meters 3.0 miles 15,450 linear feet 1 meter shorter than current route

3,000 meters 1.9 miles 9,850 linear feet

5,750 meters 3.6 miles 18,860 linear feet

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OPTION III RELOCATE ROADWAY AND RAILROAD TO A TUNNEL Tunnels The North Fraser Perimeter Route Mitigation Options Analysis includes long and short tunnel alignments for Options 3 and 4. Tunnels provide an opportunity to route heavy truck and rail traffic outside of the New Westminster downtown waterfront area while avoiding other surface streets. These options also route goods movement traffic on a more direct route reducing travel by as much a one half mile or more. While this travel reduction seems modest it translates into approximately 950,000 fewer annual trucking miles or approximately 3,750 miles per day.

Another benefit of the highway tunnel alignment option is the routing of commuter traffic to a more direct route without impacting neighborhoods or corridors.

Three Lane Highway Tunnel

Routing the railway into a tunnel benefits the City by eliminating the current barrier and reduces grade crossing conflicts for the railroad.

Railway travel savings are less than those of the trucking alignment because of required access to the Fraser River crossing and rail yard locations.

Typical rail portal: West Portal, Westside Corridor LRT, Portland Oregon.

Both alignments could be expanded to accommodate more travel lanes or tracks. Intersections and switching locations would require geometric design to understand the extent and feasibility of making connections to alternative portals, alignments or other facilities.

Distance savings and elimination of rail and truck delays would make the highway tunnel alignment an attractive route for carpool, bus and automobile commuters.

Emergency smoke evacuation fans

Typical fan component

Vent shafts would require land above the tunnel alignments for equipment and access. These facilities can be relatively inconspicuous but will consist of a modest headhouse with short vent stacks or louvered exhaust ports for supply and return air. These facilities will likely contain emergency access, smoke evacuation fans and equipment as well as safety and security monitoring.

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OPTION IV RELOCATE ROADWAY AND RAILROAD TO A TUNNEL

ATTRIBUTES Option IV Creates park blocks along Front Street Replaces Front Street with east/west one-way streets at grade Opens ground level of buildings fronting Columbia to the Park Blocks Encourages ground floor active uses in waterfront developments (adds 124,000 S.F.) Potentially 50,000 S. F. east of 8th Street Potentially adds 86,000 S.F. east of 6th Street Potentially adds 88,000 S.F. of developable area east of 4th Street Provides two major attractors Provides east/west gateway features March 13, 2006

Suggest extending “finger of riparian green� northbound on 8th ,Begbie, 6th and 4th Streets Removes the existing Parkade Potentially adds 550 parking spaces Preserve one or two rail lines for future Commuter rail or streetcar

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OPTION IV RELOCATE ROADWAY AND RAILROAD TO A TUNNEL

Section IV Front at Columbia Fountain Gateway

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OPTION IV RELOCATE ROADWAY AND RAILROAD TO A TUNNEL

Section IV B 6th Street looking west

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OPTION IV RELOCATE ROADWAY AND RAILROAD TO A TUNNEL

Section IV C 4th Street looking west

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OPTION IV RELOCATE ROADWAY AND RAILROAD TO A TUNNEL

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OPTION IV RELOCATE ROADWAY AND RAILROAD TO A TUNNEL Tunnels The North Fraser Perimeter Route Mitigation Options Analysis includes long and short tunnel alignments for Options 3 and 4. Tunnels provide and opportunity to route heavy truck and rail traffic outside of the New Westminster downtown waterfront area while avoiding other surface streets. These options also route goods movement traffic on a more direct route reducing travel by as much a one half mile or more. While this travel reduction seems modest it translates into approximately 950,000 fewer annual trucking miles or approximately 3,750 miles per day.

Routing the railway into a tunnel benefits the City by eliminating the current barrier and reduces grade crossing conflicts for the railroad.

Railway travel savings are less than those of the trucking alignment because of the Fraser River crossing and rail yard locations.

Double Track Rail Tunnel

Both alignments could be expanded to accommodate more travel lanes or tracks. Intersections and switching locations would require geometric design to understand the extent and feasibility of making connections to alternative portals or other facilities.

Another benefit of the highway tunnel alignment option is the routing of commuter traffic to a more direct route without impacting neighborhoods or corridors.

Vent shafts would require land above the tunnel alignments for equipment and access. These facilities can be relatively inconspicuous but will consist of a modest headhouse with short stacks or louvered exhaust ports for supply and return air. These facilities will likely contain emergency smoke evacuation fans and equipment as well as safety and security monitoring.

Three Lane Highway Tunnel

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OPTION V SURFACE ALIGNMENT

Provides noise and vibration mats under rail lines Provides low level noise walls with acoustical panels Provides noise mitigation for interior walls of buildings (insulation and heavy sheetrock) Provides new sound mitigating windows for unprotected buildings Suggest extending “finger of riparian green” northbound on 8th, Begbie, 6th and 4th Streets

ATTRIBUTES Option IV Retains the Goods Movement Corridor and railroad alignment (preserves two rail lines) Provides a “shell” around the Parkade with ornamental lighting Potentially adds small scale retail space under Parkade at ground level Access is on 8th, 6th and potentially on 4th Street from the Parkade Provides a frontage road on the north side of new development podium (could be 27 -feet of vacated railroad lines, subject to railroad agreement) Adds approximately 50,000 S. F. of developable area in 27-feet of railroad property.

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OPTION V SURFACE ALIGNMENT

Section V A

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OPTION V SURFACE ALIGNMENT

Section V A-2

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OPTION V SURFACE ALIGNMENT

Section V B

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OPTION V SURFACE ALIGNMENT

Section V C at Church Street looking west

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OPTION V SURFACE ALIGNMENT

Section V D at 4th Street looking west

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OPTION V: SURFACE ALIGNMENT Streetscape Improvements Only

Where space allows, parks and open space can provide separation between railroads, big streets and residents.

Low “sound walls” can be integrated into the landscape.

Stormwater feature Alfeld Germany

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Low “sound walls” mitigate rail wheel noise by keeping the sound within the guideway.

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Create a pedestrian scale streetscape on Front Street with furnishings and street trees that provide separation and protection between the heavy truck traffic and the sidewalk.

OPTION V: SURFACE ALIGNMENT Streetscape Improvements Only

Section at 8th Street looking west

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RECOMMENDATIONS GOING TO THE RIVER

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Feasibility Add feasibility here EVALUATION CRITERIA

•

Meets the current and future (15-20 Years) functional demands of trucking to and from western ports

•

Meets the current and future (15-20 Years) functional demands of freight rail to and from western ports

•

Meets or exceeds local and national air quality standards

•

Reduces and maintains noise levels below local and national noise impact standards for national highways and railroads in neighborhood areas (55 decibels)

•

Enhances and preserves views and view corridors from designated view points

•

Reconnects upland Downtown with the riverfront creating opportunities for a variety of people oriented places to accommodate the expanding local residential population

•

Strengthens commercial, retail, restaurant uses on 8th, 6th and 4th Streets

•

Enhances economic viability of historic properties on Front and Columbia

•

Provides the most cost efficient and affective options that balance transportation and land use

•

Provides access to existing buildings that face Front Street

•

Maximizes development potential by creating new developable lands

•

Eliminates truck and train grade crossing at Front and 4th Streets

•

Balances physical improvements with costs and City objectives

•

Optimizes project phasing to minimize construction impacts

Meets criteria √

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High Medium Low

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OPTIONS 1

2

3

4

5

Preliminary Recommendations The City of New Westminster should proceed with a phased approach to reconnecting the Fraser River waterfront to Downtown Westminster.

Phasing would occur over the next decade and would address immediate needs for development and transportation while proceeding with a major regional realignment of the freight truck and rail routes through a tunnel. Since many of the immediate improvements that are identified in the current capital improvements plan will benefit Downtown regardless of rerouting truck and rail freight traffic, the phasing would build upon current and planned expenditures. Moratorium or not, traffic capacity and moving more cars and trucks through, to and from the city will eventually become necessary to maintain balance between livability and Downtown viability. Following are two potential phasing approach.

Phasing Strategy A: Long Tunnel TASK

TIMELINE

Phase I: • Complete the NFPR improvements: Columbia and Front Street signals tunnel at Hastings Street th • Enable the grade crossing at 8 and Front Street • Begin planning and negotiations with the railroad • Remove rail sidings and consolidate rail traffic to two lines • Enable LARCO development to use the vacated track area to expand parking with a percentage for public use • Develop surface parking in the vacated track area east of 6th street • Provide grade separated pedestrian access from the waterfront public parking areas to Columbia Street • Raze the existing Parkade using new LARCO and surface parking area to off set public parking loss • Begin developing long tunnel alignment, cost and feasibility analysis • Create a “Blue Ribbon” committee of regional partners to guide the long tunnel analysis Analyze potential for toll pricing Phase II: • Complete the North Perimeter Route improvements • Prepare long tunnel/portal options, cost estimates, concept engineering estimates, refined feasibility analysis and environmental mitigation work • Prepare a funding strategy including toll pricing • Establish support of regional partners and participants • Complete planning level tunnel, portal analysis and recommendations • Ratify long tunnel preferred option and funding study with partners • Secure approval to proceed with preliminary engineering Phase III: • Complete environmental work • Begin preliminary engineering • Begin land acquisition for portals and vent shafts • Maintain North Perimeter Route improvements • Prepare preliminary cost estimates • Complete preliminary engineering • Approve preliminary engineering package • Confirm funding strategy • Begin final engineering • Secure construction funding • Complete final engineering • Approve final engineering • Advertise and bid project Phase IV: • Construct tunnel and relocate truck and rail traffic from Front Street • Redevelop vacated areas in the Front Street corridor and along the Fraser River east and west of Downtown where space allows 57

COST

Years 1 thru 4

Years 4 thru 7

Years 7 thru 10

Years 10-15

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Phasing Strategy B: Full Encapsulation TASK

TIMELINE

Phase I: • Complete the NFPR improvements: Columbia and Front Street signals tunnel at Hastings Street • Remove rail sidings and consolidate rail traffic to two lines.

• Enable LARCO development to use the vacated track area to expand parking with a percentage for public use.

• Develop surface parking in the vacated track area east of 6th street.

• Provide grade separated pedestrian access from the waterfront public parking areas to Columbia Street.

• Raze the existing Parkade using new LARCO and surface parking area to off set public parking loss.

• Begin developing long tunnel alignment, cost and feasibility analysis.

• Create a “Blue Ribbon” committee of regional partners to guide the long tunnel analysis.

• Begin planning and negotiations with railroad • Prepare construction staging analysis and concept for removing the Parkade and fully encapsulating Front Street and the railroad • Prepare refined concept design, costs and staging • Prepare a funding strategy including toll pricing • Ratify preferred option with partners • Secure funding commitments Phase II: • Establish support of regional partners and participants • Complete environmental work • Prepare a preliminary engineering package including drawings, cost estimates and environmental work • Complete negotiations with railroad and prepare a land dispensation strategy • Approve preliminary engineering package, cost estimates and construction staging Reconfirm funding Phase III: • Begin final engineering • Secure construction funding • Complete final engineering • Approve final engineering • Advertise and bid project Phase IV: • Construct tunnel and cut encapsulation structure over truck and rail traffic • Redevelop vacated areas in the Front Street corridor and along the Fraser River east and west of Downtown where space allows.

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Years 1 thru 2

Years 3 thru 4

Years 5 thru 6

Year 10

COST

Next Steps Public Involvement •

•

•

Establish a regional partnership and “Blue Ribbon” advisory committee to guide the alignment options development and analysis and selection process.

Prepare a public involvement plan and strategy for informing stakeholders, regional governments and the general public.

Establish a technical advisory committee that would provide coordination and oversight for addressing jurisdictional and railroad policy and technical issues and procedures.

•

Prepare a waterfront development framework plan.

•

Prepare design guidelines for review of new public and private projects that are located within the newly defined Fraser River waterfront design zone.

•

Establish a Design Commission to review development applications within a prescribed area of Downtown and along the Fraser River waterfront.

Develop a Fraser River waterfront catalyst development strategy that identifies development opportunities in Downtown and east and west of Downtown where new areas emerge from the relocation of the freight truck and rail traffic. Analyze the return on investment of transportation improvements that leverage new development and increase land value of adjacent developed lands.

•

Prepare a toll policy and pricing strategy. Analyze financial feasibility, return on investment and payback on tunnel options.

•

Prepare a funding strategy for the preferred option.

•

Prepare a lost time and energy analysis of existing out of direction freight movement.

•

Begin concept level design to identify opportunities, constraints and issues with various options for automobile/truck and rail tunnel alignments and portal locations. Consider peripheral transportation improvements on potential connecting routes.

Also refine concepts for the Fraser River waterfront to assist economic and market analysis of development opportunities achieved by the various tunnel options.

•

Incorporate policy amendments and vision into the New Westminster Plan update.

•

Analyze mass and height allowed by existing zoning to assure an urban form that strengthens a seamless connection between downtown and the waterfront.

•

Analyze potential for increasing parks and open space along the waterfront

•

Connect the bicycle and pedestrian network and update route and plan policies and maps.

•

Prepare a waterfront Parks and Open Space Master Plan for the waterfront.

•

Prepare a wayfinding system for downtown that includes information and directional signage for bicycle riders and pedestrians.

Economic Development •

the operations and impacts of tunnel portals and the movement and access characteristics of East Columbia and Front Streets. Also analyze the need for an interchange at McBride and the long tunnel and any other interchanges or connections that would be aspirational or necessary. Special attention should be given to transit operations, service and interchange between modes.

Planning Amendments

Transportation Design •

Prepare an analysis and recommendations for removing railroad tracks that parallel Columbia and Front Streets. Begin conversations with the railroad to determine receptivity and feasibility.

•

Prepare a transportation analysis that illustrates the affects of the long tunnel options to local and regional traffic. Consider local and regional automobile, bus, freight truck and rail modes including SkyTrain and freight rail.

•

Prepare a transportation operations plan that provide general recommendations and preliminary design solutions for traffic operations on Highway 1, North Fraser Perimeter Route, Major Regional Arterials, City Arterials and City Collectors. Analyze

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APPENDIX GOING TO THE RIVER

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CONTENTS

North Fraser Perimeter Route Mitigation Options Analysis

Background Materials for Staff Workshop on Mitigation of North Fraser Perimeter Route

Guiding Principles Draft

1

Policy Documents

2

x x x x

January 10, 2006 (Revised January 20, 2006)

Prepared by:

Case Studies

Lloyd D. Lindley, ASLA

x x x x

620 SW Main Street Suite 710 Portland, OR 97205

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Downtown New Westminster Action Plan LRT Station Areas: Land Use and Vision Study Volume 1: The Downtown 2005-2007 Three-Year Plan & Ten-Year Outlook Liveable Region Strategic Plan

62

Oslo, Norway I-405 Capping Project, Portland, Oregon Boston, Massachusetts Atlanta Underground, Atlanta , Georgia

2 7 8 9

13 13 15 18 20

POLICY DOCUMENTS

GOAL

Below is a compilation of goals, objectives and initiatives drawn from a variety of city and regional planning documents that will guide the framing of the above project guiding principles for the North Fraser Perimeter Route Mitigation Options Analysis Project. The following are extracted from tables and policy statements.

Recognize New Westminster’s role as the economic center of the region.

LIVABLE REGION STRATEGIC PLAN

PRELIMINARY GUIDING PRINCIPLES DRAFT The following North Fraser Perimeter Route (NFPR) Mitigation Options Analysis Draft Guiding Principles are for review and discussion. These 11 principles aim to consolidate all of the goals, objectives and initiatives from several applicable City of New Westminster and regional policy documents. These principles are intended specifically for this project and may be used for evaluation criteria for each of the design options. x x x x x x x x x x x x x x

Preserve and enhance the functions and access (trucking and freight rail) of the goods movement corridor that serves the greater region.

Preserve and enhance multimodal access and circulation to, and through, the downtown including access to SkyTrain and bus service.

Create a seamless connection between downtown and the Fraser River waterfront.

Expand and connect the pedestrian and bicycle network to the Fraser River waterfront.

Enhance development opportunities for jobs and housing in downtown and on and near the Fraser River waterfront.

Support affordable housing goals for downtown.

Identify opportunities for local and destination leisure activity such as restaurants, shopping and entertainment on and near the Fraser River waterfront.

Increase and enhance existing passive and active open space and parks.

Preserve existing and create opportunities to increase available parking to serve the area.

Support Columbia Street revitalization and streetscape improvements.

Support and enhance opportunities for historic revitalization and preservation.

Support high density, mixed use development for Downtown’s role as a Regional Town Center Provide adequate parking to meet present and future needs and the high potential for walking, cycling and transit trips Maintain access to utilities corridor

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2005-2007 THREE-YEAR PLAN & TEN-YEAR OUTLOOK Regional Roads-Greater Vancouver Transportation Authority (GVTA) Major Projects With the continuation of the $35 million Major Road Capital annual allocation in the 2005-2007 Financial Plan, a total of $230 million in accumulated capital will be available for Major Road investment in the period to 2007. The following table shows the recommended projects: x x

The GVTA Board has approved, in-principle, the Fraser River Crossing (FRC) and project development is well underway. The new crossing will be predominately self-financed through tolls and therefore will not require significant additional capital from Major Road Capital funds.

The Dollarton Bridge twinning, Fraser Highway widening and the North Fraser Perimeter Road are identified in the GVTA’s current Strategic Transportation Plan that was approved by the GVTA and GVRD Boards in 2000.

The Three Year Outlook includes $60 million to fund infrastructure improvements to the North Fraser Perimeter Route through New Westminster. The money is currently intended for an above-grade crossing at Braid Street and Brunette Avenue; intersection improvements at McBride Boulevard-Columbia Street East; signalization at the Sixth Street-Front Street intersection; and, reconfiguration of the Royal Avenue-Stewardson Way intersection.

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GOAL:

DOWNTOWN NEW WESTMINSTER ACTION PLAN

x

INITIATIVES

OBJECTIVES

GOAL: Create a people friendly downtown with a vibrant Streetlife

x

GOAL: Enhance the downtown with a strong neighbourhood character and service orientation GOAL: Develop the Downtown as a vibrant neighbourhood through the use of appropriate traffic calming techniques

x

NEW WESTMINSTER’S DOWNTOWN VISION Downtown New Westminster is: x The geographic centre of the Greater Vancouver Regional District, continues to have the second largest concentration of financial services in the region and remains the transportation and communication cross roads of the region with two SkyTrain stations leading to the core x

A special riverfront destination neighbourhood that reflects the heritage and historic traditions of the City and provides economic opportunities and growth

x

A vibrant neighbourhood – a safe, attractive and appealing people place that derives energy from the diversity of peoples and activities located there. It is a friendly place to live, work, shop, enjoy arts and cultural events, socialize, revisit history and take a stroll along the Fraser River.

x

x

x x x x

An 18 hour urban neighbourhood, vibrant all day and into the evening, that connects its past with its future. It offers diverse residential accommodations, a strong business core, entertainment and education opportunities. Its setting on the historic Fraser River provides economic opportunities and attractions that include points of historic interest and modern waterfront recreation and relaxation.

GOAL: The Railway Corridor - Enhance the livability of the Downtown

x x x x

Attractive, well lit, landscaped, with pedestrian friendly streets and pathways encouraging people to move between its unique areas – the Waterfront promenade, waterfront commercial and residential areas, Columbia Square corridor, Carnarvon Street-Law Courts corridor, Columbia Street and Front Street. These areas feature specialty retail stores, arts and crafts galleries, financial and business services, institutional and education al services, restaurants, sidewalk cafes, cultural and entertainment activities. Columbia Street and Front Street are people streets with local traffic and landscaped, pedestrian walk ways acting as the key links to the Waterfront and throughout the Downtown, featuring public art, street activity, interpretative displays and sidewalk cafes for residents, workers and visitors to meet and interact.

x

x

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Help create an exciting ambience on Columbia Street y encouraging merchants and property owners to keep outdoor spot or flood lights and indoor store lights operating year round.

Explore procedures to ensure businesses planning to locate in the Downtown adhere to the C-4 zone, such as no second hand stores on Columbia Street.

Enforce the speed limit to assist in making Columbia and Front Streets neighbourhood pedestrian friendly streets.

Assist in making Columbia Street a more pedestrian friendly street by improving the delay time in changing the traffic lights.

Enforce the no trucks policy for Columbia Street, thereby mitigating noise, pollution and high traffic volumes.

Examine and implement a traffic management program to hinder through traffic and encourage local and pedestrian traffic.

Examine the feasibility of a boulevard for Columbia Street.

Work with consultants on adjacent development to mitigate the impact of the railway.

Erect a landscaped buffer system along the railway corridor.

Implement a mural program or public art along the railway corridor which links the Waterfront to the rest of the Downtown.

Consult with CP/CN Rail, Burlington Northern and B.C. Southern and support the consolidation of the railway lines through Downtown New Westminster. Examine ways to minimize the visual impacts of the Railway on adjacent properties, such as the use of landscaped buffers and art work along the fence, particularly if there is more available space with the consolidation of line.

Examine ways to minimize the visual impacts of the Railway on adjacent properties, such as the use of landscaped buffers and art work along the fence, particularly if there is more available space with the consolidation of line.

8

GOAL:

GOAL: x

INITIATIVES x

OBJECTIVES

GOAL: Develop a Transportation and Parking Network that promotes the Downtown Economy GOAL: Establish a Comprehensive Pedestrian and Bicycle Pathway System

x x x x x x

GOAL: Front Street is a people oriented, neighborhood street x That capital improvements to be made x to Front Street enabling truck movement, and that its commercial x viability be maintained and enhanced x

x

x

That the Parkade remain an important link between Columbia Street and the Waterfront That pedestrian and vehicular safety be improved

Design a signage program to direct visitors to the Downtown Conduct a study to assess existing parking opportunities and future demand for parking in the Downtown.

As development continues, extend the esplanade from the west and the Waterfront to the remaining undeveloped east end of the Waterfront As part of adjacent development design, explore the railway corridor as a pedestrian-friendly walkway.

Encourage in new projects the use of wide sidewalks.

Review the Begbie Street and Front Street crossing to examine ways to improve the level of safety for both pedestrian and vehicular movement.

That the Parkade concept be assessed and that the Parkade be upgraded

x

x x x x x x x

Explore designs for the Parkade (i.e. signage, safety, lighting, structural integrity and layout) with the purpose of improving its access for Downtown employees, shoppers and visitors.

Initiate a marketing strategy for the Parkade that highlights its assets to the Downtown economy.

Consider beautifying the See Deck and market as “roof top garden� and to incorporate as a component of the Parks Master Plan.

Build a decorative facade for the Parkade.

Designate the top level of the Parkade as public open space with an urban park and cappuccino bar.

Enforce the speed limit for truck and automobile traffic on Front Street.

Examine and re-evaluate the signage and the signal lighting.

Lobby the municipalities of Delta and Surrey and the Ministry of Transportation and Highways for the South Perimeter Road Route.

Evaluate pedestrian and vehicular safety at the intersection of Begbie Street and Front Street.

Explore various traffic calming techniques, such as pavers, at the entry and exit points of Front Street.

Examine options to enclose the Parkade at street level, buffering truck traffic from commercial activity.

DOWNTOWN WATERFRONT AND DEVELOPMENT POLICIES

x

Enhance the connection through a theme-based mural, design campaign or landscaping.

Waterfront Policy: The Downtown will continue to revitalize through high quality waterfront developments which provide community amenities, public access, linkages, open space and view corridors of the Fraser River.

x

Reexamine the overall design and layout of the Parkade (i.e. signage, safety, lighting, structural integrity and layout) with the purpose of improving its access for Downtown employees, shoppers and visitors Address issues of safety and theft in the Parkade, and consider expanding the patrol program for the Parkade Explore design concept for the Parkade (i.e. replacement parking, design, linkages with the Waterfront, Front Street and Columbia Street, lay out and financial impacts) with the purpose of identifying options for redevelopment.

Development Policy: Columbia and Front Streets will be revitalized through high quality redevelopment and rehabilitation projects that complement the unique theme and character of the Street.

x x

x

Open Space Policy: That open space maximize the linkages between the Riverfront and the rest of the Downtown and be accessible for the general public.

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INITIATIVES

OBJECTIVES

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9

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DOWNTOWN PLAN (p. 48)

GOAL: The Downtown has spectacular views of the Fraser River. Residential and commercial developments should take advantage of these views, as well as their proximity to the Fraser River.

x

Several of the buildings on Columbia Street are excellent examples of Victorian and Edwardian architecture. Other buildings on Columbia Street look “tired”. Many of these buildings need facade restorations and several of these buildings need uses’ for their vacant upper storeys.

One concept to help address the physical barrier between the Waterfront and Columbia Street is a land bridge over the railway tracks. This land bridge could be connected between the Eighth Street SkyTrain Station and the Waterfront. This land bridge could also connect public transit users from the SkyTrain Station to Downtown’s destinations - the Westminster Quay Public Market and the soon to be built, Fraser River Discovery Centre.

To support retailers in the Downtown neighbourhood, an increase in the residential base is needed. There is an opportunity to build residential conversions in the upper storeys of historic buildings along Columbia Street and throughout the Downtown. Loft housing, artist work/live studios and single room occupants could all be viable residential uses for the adaptive reuse of historic buildings.

It is envisioned that the esplanade will be extended from the Westminster Quay Public Market all along the Fraser River providing public amenity space and public access. Also, public transit could be extended in the Downtown with a transit turnabout at the foot of 6th Street next to the Waterfront. The foot of 4th Street along the Waterfront could be an ideal location for a waterfront marina development providing public moorage facilities.

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OBJECTIVES

GOAL: Create a Downtown with high quality developments that offer a diverse mix of services and shopping opportunities x To encourage a wide variety of compatible uses that promote a sense of neighbourhood, including residential developments along the Waterfront and conversions along Columbia Street.

GOAL: Create innovative housing opportunities for a variety of household types and incomes x That the Downtown offer a variety of innovative housing forms to enhance the livability and stock of affordable housing.

The central Downtown waterfront will accommodate substantial population growth as the Larco Investment and Westminster Pier sites redevelop.

x

Create design guidelines which require new development to fit within the existing architectural context of the Downtown.

x Consider developing an extension of the waterfront at the foot of Fourth Street, (such as a marina development, and overpass with canals, lagoons and a water park).

x x

x

Ensure new development along the Waterfront is linked with Columbia Street and the Downtown community.

City, in particular the Development Services Department to work with developers to facilitate supply innovative housing forms along Columbia Street.

BIA support creative solutions for market, residential conversions in historic buildings when they make application for City approval.

GOAL: To introduce green and open space that encourages people oriented activities throughout the Downtown.

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INITIATIVES

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Attributes Case Study 1: Oslo Tunnel

CASE STUDIES

Characteristics

Issues

Challenges

Case Study 1: Oslo Tunnel Oslo, Norway

Preserved the historic high density, medieval city structure.

Description

Connected central Oslo to the waterfront especially the Aker Brygge mixed use development project.

Minimized construction impacts to central Oslo.

city are seamlessly connected, forming a vibrant civic and mixed use neighbourhood and destination. The tunnel is under Akershus Castle, the town hall plaza and much of the waterfront. The total length is approximately 3,000 M, with 1,520 M tunnelled through hard rock and 270 M in cut-andcover tunnels. “The cost for the Oslo Tunnel segment was USD 81 million or approximately USD 53,000 per meter, ventilation, lighting, traffic control and emergency equipment not included.”

Oslo, like many cities, made extensive highway plans during the 1960’s. At the same time, Oslo developed an extensive mass transportation system including a subway to serve its central city. Approximately 30% of trips across the outer tollring use mass transit while approximately 80% of trips within the inner ring use transit. At the time of mass transit development, Oslo was the only city to have a subway with a city population under one million.

Over the past decades, growth in traffic volumes has overwhelmed the capacity of the surface road and highway system. By 1986, highway capacity was exceeded all day long. What road network that had been constructed was environmentally unacceptable. Planning for new roads assumed relocation of trips on the over crowded street system.

Collectively, the city desired to preserve the medieval dense city structure and street network. As much as 70% of the new road network in Oslo is planned to be in tunnels.

Allowed capacity expansion to 100,000 average daily trips without the destructive impact of heavy through traffic.

The rock tunnel reduced costs, minimized “serious settlements” and avoided conflicts with building entrances.

The Oslo Tunnel is a six-lane, twin tunnel highway that travels under the waterfront of the central city and can accommodate average daily trips of 100,000. This tunnel replaces eight lanes of surface traffic carrying 80,000 vehicles per day that originally used roads that separated the town hall from the waterfront. Much of the waterfront was used for shipping and industrial uses. Today, central Oslo’s waterfront and central

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Oslo Tunnel alignment under Oslo’s historic and civic center

Avoid vibration damage to old and historic unreinforced masonry buildings.

Eliminate barrier of heavy traffic between central Oslo and the waterfront.

Blasting required contractors to work within strict vibration standards.

Relocate 80,000 trips per day.

Costs CAD [USD] 94 million [81 million] 62,000/m [53,000/m]

Schedule

Mid 1980 to 1992

Minimize construction impacts to historic buildings and existing businesses and neighbourhoods.

Find an alternative route for 80,000 vehicle trips per day that satisfies access demands.

Avoid possible seepage Established stringent and avoid disruption of sealing and grouting specifications. the groundwater and water pressure levels.

The Oslo tunnel is applicable to the short and long tunnel options where the tunnel is built under the water level and preserves a medieval city.

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Case Study 2: Bridge the Divide and Cap I-405 Vision Study The results of the vision process added up to recapturing 26 of the original 30 blocks lost to the freeway and:

Portland, Oregon USA Description

x x x x x x x

Between 1964 and 1966, the I-405 was constructed through southwest and northwest neighbourhoods in Portland. The road is designed to carry over 100,000 daily vehicle trips. The depressed freeway linked the I-5 and Highway 26 regional corridors which serve the central city, the metropolitan region and interstate transportation. While I-405 has provided regional and through access in the central city it also removed heavy traffic from downtown surface streets avoiding detrimental impacts on Portland’s liveability.

However, while the project enhanced downtown liveability it severed neighbourhoods to the west from seamless access to central city shopping, jobs, entertainment and Portland State University. It also interrupted neighbourhood paths to the Willamette River.

Ultimately I-405 physically divided the central city community and retarded development along its edges.

1,000 housing units 650,000 square feet of commercial space 1,800 permanent jobs 2,200 parking spaces 6 acres of parks 2 acres of indoor recreation uses 50,000 square feet of civic and recreation uses

A technical assessment of a 21/2 block area at a MAX Light Rail Station was used to determine feasibility. A pre-cast concrete deck system was modeled for constructing a buildable platform for development. The bridging system concept would act as a foundation for future development with a superimposed design load of 1,000-psf. This loading capacity would typically support a 7-story, steel-frame building with parking on the deck level. The estimated cost of pre-cast concrete deck construction for 21/2 blocks was USD 16 million or USD 160 per square foot based on 2000 costs. These cost estimates did not include acquisition of air rights, design and permitting costs and local public infrastructure improvements.

Capping the freeway was first identified in the 1970’s by the Goose Hollow Neighborhood which shares its easterly border with I-405. Later, during the Central City planning process, City planners identified capping the freeway as a vision for Portland and included the idea in the 1988 Central City Plan. In 1998, Mayor Vera Katz initiated a 6 month design process with the American Society of Landscape Architects to involve the community in exploring capping options to reclaim 26 of the original 38 blocks that were lost to the freeway project.

The project focused on: x x x

x x

Existing I-405 corridor in central Portland.

I-405 Encapsulation study area in downtown Portland.

Reconnecting the neighbourhoods of downtown Exploring and developing multi-modal transportation alternatives.

Encouraging private investment and attracting key targeted industries to downtown, linking job development to adjoining neighbourhoods and activities occurring at Portland’s urban universities.

I-405 Encapsulation study area in downtown Portland.

Creating a safe and inviting atmosphere by building structures at a human scale and public amenities that contribute to the urban and natural environment.

Integrating innovative solutions to land use, transportation, infrastructure and environmental systems.

Typical center support detail at the center of I-405.

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Typical cross section of lid over I-405.

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17

Much of the landward segments of the project were encapsulated using a slurry wall system which is a form of cut-and-cover construction. The slurry wall system begins with thin trenches that are filled with liquid clay (slurry) to help retain the trench profile.

Reinforcing, up to 100 feet in depth, is craned into trench segments and followed with pumped concrete. The heavier concrete displaces the slurry as the trench is filled. This system reduces the width of excavation and enables the final walls of the cut-andcover facility to be in place prior to excavation.

Case Study 3: The Central Artery/Tunnel Project or

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The Big Dig

Attributes

Boston, Massachusetts USA Description The Big Dig “is the largest and most complex urban infrastructure project ever under-taken in the modern world.” The project replaces a 1950’s elevated roadway system that provided local and regional access, to, from and through downtown Boston.

Locals called the old elevated roadway “The Green Monster” in that it created a 40-foot high wall that severed neighbourhoods and cut off the City from its waterfront.

Characteristics

Issues

Challenges

Reconnected downtown Boston neighbourhoods and districts.

Created 260 acres of open space, parks and plazas

Reclaim damaged neighbourhoods, businesses and the Boston “way of life.”

Add open space to the North End which is underserved for outdoor recreation.

Minimize impacts of freeway noise and air quality.

Building underwater, and underground in a dense urban environment.

Reclaimed downtown city streets from elevated roadway and grid lock.

The project has spanned 30-years with construction budgets beginning at USD 2.6 billion in 1983 and escalating to USD 15 billion in 2005. The Big Dig is eight linear miles of 4 to 12 lane subterranean highway constructed underground or underwater in combination with surface, bridge and viaduct segments. The project enables the reclamation of a 100-acre city dump, 44 acres of and industrial corridor and 27 acres of downtown land made available by the removal of the elevated highway.

These lands are being converted into public open space and parks in the heart of downtown Boston.

Another added benefit of The Big Dig was that the project necessitated rebuilding outdated utilities some as old as 150 years.

Costs CAD [USD] 17.5 billion in 2005 dollars [15 billion] in 2005 dollars

Schedule

April 1983 to 2005

Working within 150 year old infrastructure in a 370 year old city.

Maintaining access, business vitality and liveability during construction.

5.8 billion to maintain interstate, local street, sidewalk operation during construction (incl. in 17.5 billion cost)

Maximize local, regional and interstate transportation capacity and function without exacerbating traffic congestion and grid lock in downtown Boston.

Applicability The Big Dig applies to Option II where slurry walls minimized disruptions to surrounding building foundations and utilities.

Central Artery/Tunnel project extent. Construction contracts 11 through 17 are most relevant to New Westminster as they run through and under Downtown Boston.

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Attributes

Case Study 4: Underground Atlanta Atlanta, Georgia USA

Characteristics

Description

Historic preservation and revitalization of post Civil War building facades and spaces.

Approximately 85,000 people work within ½ mile walking distance with nearly 250,000 employees in downtown Atlanta.

Reclaimed downtown city streets from elevated roadway and grid lock.

Encompasses 6 city blocks.

Contains 225,000 square feet of retail and restaurant space.

Features festivals, holiday celebrations and daily performances.

archways, cast iron pilasters, decorative brickwork and handcarved wood posts and panels” that were still intact. The first underground Atlanta opened in 1969 as a retail, restaurant and entertainment center. By 1980, because of “some economic hiccups” through the1970’s including the construction of MARTA rapid transit, it was closed.

Underground Atlanta has a long history beginning in 1836 and stretching to present. Evolution of transportation and Civil War events contribute to the rich character and cultural importance of the place. Today, Underground Atlanta is an exciting “city beneath a city” with shops, restaurants and entertainment that is a dest5ination for locals as well as national and international visitors.

Underground Atlanta is on the National Register of Historic Places. Its landmark status and through the determination of downtown city leaders it was refurbished and reopened in 1989. “At a cost of USD 142 million, it was redesigned to become one of the major projects aimed at preserving and revitalizing Downtown Atlanta. Today, Underground Atlanta offers a complete family experience, with retail shops, special event, unique entertainment, the Old Alabama Eatery food Court and fine restaurants.

During the early decades of the last century (1920-1929) concrete viaducts and elevated streets provide access and circulation over the downtown railroad system. Retailers moved businesses to the second level of buildings while using the ground level storefronts for storage and service. High rise development and parks were built around and on top of the viaducts. In the 1960’s the underground was viewed as an opportunity to revitalize “ornate marble storefronts, granite

Issues

Challenges

Reclaim historic and cultural architecture and uses.

Costs CAD [USD] 170 million [145]

Schedule

Opened in 1989

Help revitalize downtown retail and entertainment for locals and visitors

Applicability The Underground Atlanta reclaimed downtown city streets and could be applied to Front Street to energize and revitalize restaurant and retail.

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SOURCES Advanced Computing Technologies, Inc. “Underground Atlanta History” <http://www.underground-atlanta.com/HTML25.phtml> Berglund, Nina, “New projects set for Oslo waterfront” Aftenposten, 2002 <http://www.aftenposten.no.english/local/article41586.ece> Bjorgan, Trond; Berge, Kjell O., Nyskog, Aanund, “Road Tunnels in Oslo”, Google Earth.

Brende, Burge, “Norway’s Vision and Strategy for Sustainable Development, Laboratory of Regional Design with Ecology, 2005. <http://www.eco-history.com/00eng/05sym/sym_050520/05meet_050520.html> City of New Westminster, BC, Official Community Plan for Downtown New Westminster, February 1987 City of New Westminster, BC, Downtown New Westminster Action Plan, April 1996 City of New Westminster, BC, LRT Station Areas: Land Use and Vision Study Volume 1: The Downtown, September 2004 City of Portland, Oregon, I-405 Strategy Team Final Report, September 2000 Federal Highway Authority “Boston’s Central Artery/Tunnel Project” Innovations and Advancements Program <http://www.masspike.com/pdf/big_dig/innovation.pdf> Greater Vancouver Regional District, Liveable Region Strategic Plan, January 1996 Maihos, John, “About Boston’s Money Pit, The Big Dig.” Your Guide to Boston, MA. <http://boston.about.com/cs/traffic/a/bigdig0200_p.htm “The Big Dig, Boston, MA, USA”. SPG Media Group PLC, 2005 <http://www.roadtraffic-technology.com/projects/big%5Fdig/ > McNichol, Don, The Big Dig (New York, Silver Lining Books, Inc., 2002) Styrheim, “Waterfront Development”, http://styrheim.erbblogg.no/261004233131_waterfront_development.html 2006 Tretvik, Dr. Terje, “Norway’s toll rings: Full scale implementation of urban pricing” SINTEF, Civil and Environmental Engineering, 2003.

Wood, Daniel C. “Learning from the Big Dig-Boston Central Artery/Tunnel project” <http://www.findarticles.com/p/articles/mi_m3724/is_1_65/ai_78805314>

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