Report
to/Rapport au :
Planning and Environment Committee
Comité de l'urbanisme et de
l'environnement
and Council / et au Conseil
25 October 2005 / le 25 Octobre 2005
Submitted by/Soumis par : Ned Lathrop, Deputy City Manager/
Directeur municipal adjoint,
Planning and Growth Management/Urbanisme et Gestion de la croissance
Contact Person/Personne
ressource : Dennis Jacobs, Director,
Planning, Environment and Infrastructure
Policy/Politiques d’urbanisme, d’environnement et d’infrastructure
(613) 580-2424 x25521, dennis.jacobs@ottawa.ca
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SUBJECT: |
PRESTON STREET STREETSCAPE PLAN |
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OBJET : |
PLAN
D’AMÉNAGEMENT ET ÉVALUATION |
REPORT RECOMMENDATIONS
1.
That the Preston
Street Streetscape Plan be APPROVED as outlined in Documents 2 and 3.
2.
That the funding of
the streetscape improvements outlined in the Streetscape Plan be shared between
the City and the Preston Business Improvement Association on a 1/3, 2/3 basis
respectively.
3.
That the City enter
into a Maintenance Agreement with the Preston Business Improvement Association
concerning the funding of hydro for the decorative streetlighting and the
ongoing maintenance of the streetscape improvements.
4.
That the Planning
and Environment Committee recommend Council approve the preparation and posting
of the Municipal Class Environmental Assessment, Notice of Completion.
5.
That the detailed
design and construction of the streetscaping improvements be coordinated with
the planned infrastructure renewal initiatives.
6.
That the cost for
the streetscape improvements outlined in Document 4, the related public arts
funding and maintenance costs, be identified in the 2006 Long Range Financial
Plan and in future capital budget submissions as an incremental cost to the
Preston Street planned infrastructure renewal.
RECOMMANDATIONS DU RAPPORT
1.
Que le plan d’aménagement de la rue
Preston soit APPROUVÉ tel que mentionné dans les Documents 2 et 3.
2.
Que le financement nécessaire à l’aménagement
de la rue mentionné dans le plan d’aménagement soit partagé entre la Ville et
l’Association d'amélioration commerciale de la rue Preston, dans une proportion
de 1/3, 2/3 respectivement.
3.
Que la Ville passe un accord d’entretien
avec l’Association d'amélioration commerciale de la rue Preston concernant le
financement de l’électricité nécessaire à l’éclairage de rue décoratif et à
l’entretien permanent lié aux améliorations d’aménagement de la rue.
4.
Que le Comité de l'urbanisme et de l'environnement recommande au Conseil
d’approuver la préparation et l’affichage de l’avis d’achèvement d’évaluation
environnementale municipale de portée générale.
5.
Que la conception détaillée et la
réalisation des améliorations de l’aménagement soient coordonnées dans le cadre
des initiatives planifiées de renouvellement de l’infrastructure.
6.
Que le coût des améliorations de
l’aménagement figurant dans le Document 4, le financement d’arts publics qui
s’y rapportent et les coûts d’entretien soient désignés dans le plan financier
à long terme de 2006 et dans les propositions futures de budget
d’immobilisation en tant que coûts différentiels pour le renouvellement
planifié de l’infrastructure de la rue Preston.
EXECUTIVE SUMMARY
Assumptions and Analysis:
Following on the recommendations of the Preston Champagne Plan of Development and the initiatives of the Preston Street Business Improvement Association (BIA), a Streetscape Plan process began in the spring of 2002 in accordance with the Municipal Class Environmental Assessment process. Conceptual alternative designs were developed and presented at a public open house in June of 2003. The option preferred by the public was then screened for technical feasibility. A detailed traffic analysis for this concept was undertaken by Delcan, which revealed some deficiencies in lane widths, intersection design and on-street parking. Corrections were then made to the plan and the revised concept was again presented at a public open house in April of 2005. Some traffic calming measures and street trees were added to the plan following this meeting at the request of residents of the area. The final plan is attached as Document 3.
Financial Implications:
Approval of this report will require the identification of the implementation cost for the streetscape plan in the 2006 long-range financial plan. This project, estimated at $900,000.00, gross and $300,000.00 net, plus Arts funding and maintenance costs, will be identified in future capital budgets and coordinated with the street rehabilitation project being undertaken by Public Works and Services.
Public Consultation/Input:
A Project Team was consulted throughout the study process. Two public open house meetings were held to provide for public review and comment on the plan. Revisions were made in response to the public comments. This revised Streetscape Plan as supported by the project team, including the Councillor for Somerset Ward, the Preston Street BIA and the Dalhousie Community Association, is now being presented for approval.
RÉSUMÉ
Hypothèses et analyse :
À la suite des recommandations du plan d’aménagement Preston Champagne et
des initiatives menées par l’Association
d'amélioration commerciale de la rue Preston, un processus de
planification d’aménagement a été entrepris au printemps 2002 dans le cadre de
l’évaluation environnementale municipale de portée générale. Des solutions de
rechange en matière de conception ont été élaborées et présentées lors d’une
réunion portes ouvertes tenue en juin 2003. L’option privilégiée par le public
a ensuite été passée au crible aux fins de faisabilité technique. Une analyse
détaillée de la circulation, tenant compte de ce concept, a été entreprise par
Delcan et a révélé certaines lacunes liées à la largeur des voies, à la conception
des intersections et au stationnement sur voirie. Des correctifs ont donc été
apportés au plan et la nouvelle version du concept a été à nouveau présentée en
avril 2005, lors d’une réunion publique. Quelques mesures de modération de la
circulation et des arbres de rue ont été ajoutés au plan à la suite de cette
réunion, à la demande des résidents du secteur. Le plan définitif est joint au
Document 3.
Répercussions financières :
Le coût de mise en oeuvre du plan d’aménagement paysager de la rue devra
figurer dans le plan financier à long terme de 2006 aux fins d’approbation du
rapport. Ce projet, dont le coût est estimé à 900 000 $ brut et à
300 000 $ net, et auquel s’ajoutent les coûts de financement des arts
et d’entretien, sera mentionné dans les prochains budgets d’immobilisation et
entrera dans le cadre du projet de réfection de rue entrepris par Services et
Travaux publics.
Consultation publique / commentaires :
Une équipe de projet a été consultée tout au cours de l’étude. Deux
réunions portes ouvertes ont été tenues afin de permettre aux résidents
d’examiner le plan et de faire part de leurs commentaires. Des révisions ont
été apportées en réaction aux commentaires reçus. Ce plan d’aménagement révisé,
approuvé par l’équipe de projet, notamment par la conseillère du quartier
Somerset, l’Association d'amélioration
commerciale de la rue Preston et l’Association communautaire Dalhousie,
est aujourd’hui présenté aux fins d’approbation.
BACKGROUND
The Preston-Champagne Plan of Development was prepared in 1994 to provide an overall framework for future development of the established neighbourhoods within this corridor. Zoning of these lands then followed to establish the mix of uses and form of development. In 1999 the Preston Street BIA initiated Project Patio in an effort to animate the street. These and other studies and initiatives led the City of Ottawa to the decision that there was a need to initiate the Preston Street Streetscaping Project. The project was planned in accordance with the requirements of the Ontario Municipal Engineers Association, Municipal Class Environmental Assessment (2000), Schedule B Project.
A Request for Proposals was issued in the spring of 2002 and Commonwealth Historic Resource Management Limited was selected. Over the course of the spring and summer of 2002, a detailed physical analysis and inventory of the street and BIA area on a block-by-block basis was conducted to identify the area’s unique character and defining features.
Marketing analysis revealed that with respect to the successive development of Preston Street (1) the Market is primarily local, and (2) importance in mixing “branding” concept and marketing. The branding concept identified for Preston Street is “Viva Italia”.
Strategies specific to Preston Street were identified that directed conceptual development. This included Preston Street as a linkage between national attractions (i.e. Dow’s Lake at one end and the National War Museum at the other end). The conceptual plan capitalizes upon this feature, presenting Preston Street as a “potential national attraction”, for Italian culture.
The design concepts that were developed drew from the history and culture of the Preston Street area. Specific design elements, such as a Patio Pilot Project, Portal Arch, and the Mural Project were identified. Prior studies and reports were reviewed and relevant recommendations integrated, which influenced the design development.
During the winter and spring of 2003, Phase 2 (Alternative Solutions) of the Municipal Class Environmental Assessment Process was conducted on the five design options that were developed for the Streetscape Plan. The result of this process was to identify the preferred option for detailed design. In June, a Public Open House was held to present the plans to the public and invite their comment. The Open House was relatively well attended and the presentation solicited a range of comments. While there was no clear preference from the public, the majority who attended voted for Option 4C, which included the removal of on-street parking and wider sidewalks along with a narrower travelled roadway.
This design option was then subjected to a technical review by staff and the need for a detailed traffic study was identified. Declan was hired in the fall of 2003 and completed the study in the winter of 2004. A number of technical deficiencies were identified relative to the loss of parking, substandard lanes to accommodate trucks, buses and bicycles, and turning lanes at major intersections. The results of this study were used to develop the preferred design for the streetscape plan, which is supported by the Project Team.
This preferred Streetscape Plan was presented at a second Public Open House on April 27, 2005 at the Plant Bath Community Centre on Preston Street. Some minor changes have been made to the plan as a result of comments coming from this meeting. A preliminary cost estimate was developed based on this revised design, which is now being presented in this report. It is our opinion that this Streetscape Plan represents the consensus of opinion on the Project Team and the general public. There is a general understanding that a balance has been struck between the technical requirements of the roadway and the desire of the community to create a pleasant environment for residents and visitors to enjoy the unique ethnic character of the street.
DISCUSSION
Recommendation 1:
The Streetscape Plan addresses a number of issues related to the physical quality of the environment of Preston Street. The Project Team has been able to achieve a balance of the various interests and users competing for space within the average 20 metre right of way. The issues that have been resolved include the following:
- Parking has been identified as important to the viability of the businesses and the adjacent residential neighbourhoods. The Streetscape Plan addresses on-street parking most directly by striking a balance with the objective to provide widened sidewalks for pedestrians, outdoor patios and festival programming. The Transportation Analysis undertaken by Delcan identified the potential impacts on the parking supply that would result from the Option 4C Plan, which was preferred by the public when presented at the first Open House in 2003. This technical review allowed the Project Team and the Parking Subcommittee to judge how a balance could be achieved along the street so that sidewalks could be widened in some areas and on-street parking could be retained in others. As a result, the existing on-street parking supply was reduced by 60 spaces or approximately 30%. The Parking and Operations Branch, PWS, has been pursuing opportunities on an ongoing basis to increase the parking supply in the area. Private development along the street, such as at the Sakto site (333 Preston Street at Aberdeen), will add parking for offices that can also be opened for public use in the evenings and weekends.
- Traffic circulation and flow will generally be improved by implementation of the Streetscape Plan. The Transportation Analysis (Delcan) identified the need to maintain adequate lane widths to accommodate the multi-use nature of the roadway. The street is an important transit, truck and cycling route, which places significant load on the 20-metre right of way. The other significant improvement is the addition of left turn lanes and shared through lanes at the major intersections to assist traffic flow. Analysis of the projected 2010 traffic volumes indicates better Level of Service ratings and lower volume-to-capacity rates are achieved compared to the Option 4C plan preferred by the public at the first Open House.
- The generous travelled lanes at 4.5 metres will accommodate the significant truck traffic on the street, which will remain at least until an alternative route is provided in association with a new bridge crossing the Ottawa River. This lane will also be shared with cyclists, as the street is a designated route in the City’s Cycling Plan. Cycling will also be supported with bike parking racks located within the commercial area (BIA) of the street.
- The upgrading of pedestrian amenity is a key objective of the Streetscape Plan to encourage residents and visitors to the street to walk between Dow’s Lake on the south and LeBreton Flats on the north. This supports the role of Preston Street as a Mainstreet in the Official Plan. Sidewalks have generally been widened along the length of the street. Within the residential area from Spruce Street to Primrose Avenue one lane of parking is to be removed and the associated 2.6 metres is to be divided between both sides of the street to add 1.3 metres to the sidewalk width. The minimum standard of 1.8 to 2.0 metre sidewalks will be met along the remainder of the street.
- Bulb-outs will be added within the commercial area (BIA) of the street, primarily from Larch south. These will add 2.75 metres to the boulevard, which will include concrete pavers, street trees, benches and space for outdoor patios where they may be approved as encroachments within the street. Corner bulb-outs will be included in the residential area north of Gladstone to improve pedestrian safety at crossings and define the parking lane. A key concern of the Project Team is the warning signage that is used to alert drivers of an approaching bulb-out. The striped signage is considered to be unsightly and generally undesirable. It is important that alternatives to this signage, such as decorative bollards, be considered as part of the detailed design phase of the streetscape project.
- Bus stops will be located on bulb-outs in order to maintain transit priority within the travelled lane of the street. As buses remain within the travelled lane there will be no conflict due to frequent merging into traffic. The bulb-out will provide an expanded waiting space and shelter for bus transit users.
- In keeping with the “Corsa Italia” theme of the street, an increase in space will be available for programming during the festivals, which take place within the Business Improvement Area. The new bulb-outs will be able accommodate the peak pedestrian flows during these occasions. The upgraded treatment of the main intersections and adjacent properties will also support the activities taking place during the festivals.
- A number of private properties along the street are recommended for special landscape treatments to support the design theme and activities along the street. At the intersection of Carling, the Imperial Oil and CIBC properties provide an opportunity for public amenity space, which compliments their gateway location. It is recommended that the zoning of these properties will be reviewed and amendments proposed to ensure that pedestrian amenity space is added to the corner and in association with the existing arch. Properties at the northeast and southeast corners of Gladstone should also receive enhanced landscape treatment in association with the senior’s housing and Adult High School at those locations. The soccer field on the latter site will remain available for community festivals. A second gateway arch is proposed for the north end of Preston Street where it intersects with Albert. A formal arrangement of trees is to be added within the right of way to complement the arch and signify this important gateway to the street.
- Upgrading of the Hydro service was thoroughly explored for the street. Currently a wood-pole overhead line extends along the east side of the street for its full length. Full burial of the hydro service is the approach most desired by the BIA and residents along the street, however the cost, which is estimated at 10 million dollars, is considered to be prohibitive for the major stakeholders to pursue. The lesser alternative of an upgraded overhead pole line would also be difficult to achieve at 2.5 million dollars, as funds are not available beyond the upgrades directly related to the Streetscape Plan. Public Works and Services Department has advised that they do not anticipate that the hydro poles will be removed during the reconstruction of the street therefore they will not fund the replacement of the hydro poles with new spun-concrete poles. In the absence of a funding program from a senior level of government at this time it is recommended that the existing wooden pole line remain with the replacement of poles by Ottawa Hydro where they have passed their service life. Some improvement of the overhead wiring can be undertaken during the street reconstruction, which should reduce the negative visual impact of wires crossing the street.
- It is anticipated that a percentage of the capital cost of the Preston Street reconstruction project will be allocated for public art. The selection of the artist and works to be installed on the street will be undertaken by Public Works and Services Department as part of the detailed design and construction phase of the project.
Recommendation 2:
Within a Business Improvement Area (BIA) the practice is that costs will be shared between the City and the BIA 1/3, 2/3 respectively for any features that are upgraded beyond the standard treatment associated with a street reconstruction. That is, the cost of widened sidewalks with concrete pavers, decorative pedestrian-scaled streetlights, benches, garbage bins, bike racks etc. The Landscape Cost Estimate attached as Document 4 gives a general indication of the costs of the upgraded streetscape treatment. It is preliminary to the estimate that will be provided as part of the detailed design to be undertaken by Public Works and Services. The BIA contribution will include only the difference between the cost of the standard streetscape treatment and the upgraded treatment as outlined in the Streetscape Plan.
Recommendation 3
Where a BIA is involved in the Streetscape Plan and associated improvements, an agreement is executed between the City and the BIA to undertake certain responsibilities associated with the ongoing maintenance. The chief responsibility of the BIA is to pay the annual hydro costs associated with the pedestrian lighting along the street. The City will maintain the street according to its standards, as well as repair and replace the streetscape features, including all of the upgraded features, such as unit paving, widened sidewalks, street trees, pedestrian lighting, benches, garbage bins and bike racks, as the need arises.
Recommendation 4
Following approval of this report by City Council the Municipal Class Environmental Assessment, Notice of Completion is issued as the final step in the study process under the Provincial Environmental Assessment Act. If no Part II Orders (‘bump-up’ requests) are received to this notice by the Minister of the Environment within 30 days of its posting in the local newspapers, the project will be considered approved.
Recommendation 5
The Department of Public Works and Services has identified road, sewer, and water infrastructure renewal requirements for Preston Street between Carling Avenue and Albert Street. The preliminary cost estimate for this project is estimated to be approximately 20 million dollars. As part of the 2006 capital budget, the Department will be identifying a funding requirement for the design and contract preparation. This will include the design of the streetscaping elements. Funding for construction will be identified in future budgets, and given the scope of work, construction is anticipated to be phased over three construction seasons; this will be confirmed when the design is completed and will be subject to funding availability. The renewal of infrastructure along Preston Street will provide and opportunity to implement the streetscaping plan once approved by Council. Funding for the enhanced streetscaping will be identified as an incremental cost to the infrastructure renewal in the 2006 Long Range Financial Plan and in future capital budget submissions.
Recommendation 6:
A preliminary budget has been estimated for the upgrades associated with the Streetscape Plan, which is attached as Document 4 to this report. This is a Class D estimate at this time, which provides an indication of the scale of costs associated with this project. A more detailed estimate will be undertaken by Public Works and Services Department as part of the Detailed Design and Construction phase of this project. The streetscaping will then be added to the general rehabilitation to create an integrated design and budget for the project.
ENVIRONMENTAL IMPLICATIONS
The Municipal Class Environmental Assessment process has addressed all of the environmental implications of this streetscape project.
CONSULTATION
The Preston Street Streetscape Project is being
undertaken in accordance with the Municipal Class Environmental Assessment
Process (Ontario Municipal Engineers Association 2000), and follows the
guidelines prescribed for a Schedule “B” project: Item Number 11 – streetscaping
not part of another project. In
conformity with the Municipal Class Environmental Assessment guidelines, an
extensive consultative process was undertaken in the creation of this
Streetscape Plan. A Public Advisory
Committee was formed, including the Councillor for the affected area,
representatives of the BIA and the Dalhousie Community Association.
Two Open House type public meetings were staged
during the streetscape planning process.
The first occurred after the analysis of the preliminary findings was
complete, which presented a series of options for the design of the
street. As a result of this meeting and
the subsequent review of the public comments, a clear favourite option of the
public emerged.
This Option 4C, as it was called, was then subjected
to a thorough technical review, undertaken with the assistance of the Technical
Advisory Committee, which revealed a number of barriers to the implementation
of the Streetscape Plan. These primarily
involved traffic circulation, cycling, public transit and on-street
parking. The Project Team worked over
the course of 10 months to resolve these deficiencies and develop a Streetscape
Plan, which achieved most of the objectives of the preferred Option C.
A second Open House Public Meeting was staged in the
community where the revised Streetscape Plan was presented to the public. The comments from this meeting were reviewed
and revisions were made to the Plan, including the addition of the corner bulb-outs
within the residential area of the street.
This revised Streetscape Plan is now being presented for approval.
FINANCIAL IMPLICATIONS
Approval of this report will require the
identification of the implementation cost for the streetscape plan in the 2006
long-range financial plan. This
project, estimated at $900,000.00, gross and $300,000.00 net, plus Arts funding
and maintenance costs, will be identified in future capital budgets and
coordinated with the street rehabilitation project being undertaken by Public
Works and Services.
SUPPORTING DOCUMENTATION
Document
1 - Consultation Details
Document
2 - Executive Summary
Document
3 a - Streetscape Plan – Albert Street to Eccles Street
Document
3 b - Streetscape Plan – Eccles Street to Gladstone Street
Document
3 c - Streetscape Plan – Louisa Street to Aberdeen Street
Document
3 d - Streetscape Plan – Beech Street to Carling Avenue
Document
3 e - Typical Bulb-Out with Patio – Pavement Enlargement
Document
3 f - Road Cross Sections
Document
4 - Landscape Cost Estimate
DISPOSITION
The Planning and Growth Management Department will
issue the Notice of Project Completion for a 30-day review period, in
accordance with the Provincial Environmental Assessment Act.
The project will be considered approved once the
formal review period is over, and if no Part II Orders (‘bump-up” requests) are
received, by the Minister of the Environment.
The Department of Public Works and Services will undertake the Detailed Design and Construction of Preston Street.
