October 19, 2009 Michael Gordon Senior Planner, Central Area Planning City of Vancouver #406-515 W. 10th Ave., V5Z 4A8 Re: North East False Creek High Level Review (report#2 of 2) Dear Michael, Thank you for another opportunity to provide comment on the City s North East False Creek concept. We understand the importance of this undertaking and we appreciate the opportunity to provide input on this latest iteration of the High Level Review. We have consulted with our members and have incorporated their suggestions into this document. Background The Members of the Vancouver Public Space Network (VPSN) have been involved in consultations pertaining to the North East False Creek (NEFC) High Level Review since early 2008. The conditions surrounding the latest version of the High Level Review (outlined in Report 2 of 2) have not dramatically changed and, as a consequence, many of our comments are in keeping with those we presented earlier in 2009. The intent of our present letter is therefore to provide an updated version our collective feedback on the process of the NEFC High Level planning review and direction of the land use, density and areas identified for public open space and amenities for the North East False Creek Area. In summary, we believe that the current plan is inadequate, and that many of the concerns that we listed in our letter of March 20, 2009 have not been sufficiently addressed during the eight months that have elapsed since the previous report to Council. High Level Review Process Having been involved in the High Level Review process for over a year and a half, we are of the opinion that this planning exercise has continued to be compromised by the imposition of an ODP amendment to BC Place as well as the unanticipated (and still tobe-determined) siting of the Vancouver Art Gallery in the Plaza of Nations area. These two large planning directions have, in the view of our organization, greatly diminished the opportunities and limited the possibilities for a vibrant, diverse and liveable neighbourhood in a new NEFC. More immediately, they have shifted the focus and significantly constrained the broad intent of the High Level Review. BC Place ODP The VPSN believes that the imposition of the BC Place ODP revision has weakened and confused the planning direction and shifted the planning study towards a focus on developing large masses of dense commercial and residential housing surrounding BC Place. We find questionable the appeal of residential use in such close proximity to a 1
facility such as BC Place that regularly schedules large organized events. The events that are typically hosted by BC Place create noise above accepted levels for extended periods and require the continued movement of large numbers of motor vehicles and people to supply, support and transfer crowds and goods to BC Place. With regard to the impact on the public realm, the ODP amendment has not provided sufficient gathering spaces for the crowds expected at BC Place events. One can only surmise that the crowds who will frequent the events at these large venues will gather outside the front doors of condo buildings. BC Place continues to block the physical and visual connection between downtown Vancouver and False Creek. The opportunity given to improve these connections was overlooked in the ODP amendment and provides little flexibility for improvements to the area s public spaces and to create elements that relate to a human scale surrounding BC Place. Vancouver Art Gallery vs. Civic Plaza? The provincial government has suggested the former Plaza of Nations to be the new location for an enlarged footprint for the Vancouver Art Gallery (VAG). The proposed site and orientation of the VAG building, as has been presented in the planning study, serves as a literal wall to access False Creek and limits the possibilities for an outdoor plaza large enough for a festival or performance space that Vancouverites have enjoyed since 1986 as the Plaza of Nations. This loss of contiguous public space, in favour of segmented, interrupted mini plazas, as portrayed in the study, is a serious deficiency of the proposed layout that would, if enacted, seriously handicap the area s great public realm potential. Despite recent questions about whether the VAG plan will go ahead, it is still (for all intents and purposes) on the books. That being said, we note that the uncertainty of this particular component of the project has the further effect of manifesting a climate of considerable uncertainty about many other aspects of the NEFC planning as well. The VPSN membership are in favour of a large public gathering space located directly on the waterfront (the current location of the Edgewater Casino). The size and function this space are to match the former Plaza of Nations. Having a large public performance space that is managed and owned by the public is critical to providing access to this centrally located and cherished space and a venue for numerous community celebrations such as the Taiwanese Festival, Dragon Boat Festival and other cultural events. The direct access to the water is essential for this space to provide the flexibility for the largest range of events possible plus retaining visual and physical public access to False Creek. This location has the best sun exposure and views providing an inviting space for all Vancouverites and visitors. It should also be mentioned that determining strong edges and access to Pacific Boulevard for this reimagined public gathering space are as important as providing the venue. Locating commercial services and attractions on the edges of the large public gathering space will ensure that it remains vibrant and safe throughout the day and night. Direct access to Pacific Boulevard is essential for wayfinding and moving people and goods through the space. NEFC Planning Direction Vancouver residents, businesses and visitors hope that the NEFC High Level Review will provide a strong direction and vision for the future of the last underdeveloped part of False Creek. It is currently very difficult to walk, bicycle and drive between surrounding neighbourhoods, Downtown and NEFC because of the poor physical and 2
visual connections between these areas. On this note, there are three major deficiencies in the proposed High Level Review that we would like to identify. 1. Connectivity - convenient, safe + comfortable We believe that the proposed building form should provide porosity to False Creek and to the seawall, one of Vancouver s public space successes. These areas will only remain a success if new development continues to respect and relate appropriately to the existing structure of the seawall and provide adequate access and additional gathering spaces that create a variety of experiences within the NE section of False Creek. The proposed plan does little to reconnect the downtown to False Creek or provide viable walking or biking routes between the seawall and downtown. Full and true integration of this new neighbourhood with the surrounding established neighbourhoods will be required for the long-term success of this project. It is unclear how the visual connection between the sub-areas presented in the plan and wayfinding will be addressed to support these much needed connections. BC Place, GM Place, Pacific Boulevard and the Georgia Viaduct all act as significant barriers to the area and are a considerable source of frustration for residents and visitors. A connection from False Creek to Robson Street, Vancouver s most significant pedestrian street, needs to be vastly improved from what is available now. The imposition of large commercial and residential building masses will only exacerbate the problem unless strong, purposeful linkages to the downtown are developed. The mention of the potential Georgia Steps connecting Georgia Street to NEFC is an appealing notion, although it remains an idea that has been described more by current constraints than the desire or a vision to visually and physically connect people from False Creek to Downtown. The continued treatment of Pacific Boulevard as a fastmoving and deadly car-centric arterial belies this point. Connections between transit centres, such as Stadium-Chinatown SkyTrain Station, and NEFC are also in need of greater emphasis and attention as transit ridership in and out of the city will increase dramatically in the coming years. People will only use these spaces if they are convenient, safe and comfortable. The current plan requires more emphasis on the pedestrian experience and access for bicycles and for people with all abilities. 2. Starting with Public Space Vancouverites are looking to the City to develop a land use strategy and building massing around a sufficiently robust allocation of public open space and adjunct public benefits and amenities. The proposed vision for the neighbourhood is one that includes regionally significant entertainment and cultural facilities. This plan must have the public spaces and amenities to accommodate not only the expected large number of visitors, but also existing City residents who presently use the space and the families who will live in the new residential area. Such spaces are essential for injecting a social and cultural structure to NEFC. Moreover, these spaces can provide a structure to locate private residences and commercial buildings by setting scale, location and proposed uses around the public realm. We believe that determining an open space structure as a starting point for the NEFC area is essential. Our fear, however, is that the fabric of the public space in the area will be determined in an incidental fashion i.e. as a later detail that comes shaped as 3
the result of whatever hasn t already been planned. Starting early with the public realm would ensure a high level of quality and usability for pedestrians, bicycles and transit uses, and would provide needed venues for neighbours to interact, artists to perform and children to play. It would also enhance the sense of place that is inherent to False Creek. From that starting point, land use and development form would be more thoughtfully structured in relation to the network of open space which we believe would lead to a well-scaled, vibrant, inclusive and attractive neighbourhood. On this note, we wish to register our concern that a good portion of public open space identified in the NEFC plan has been located in a marginal area under the Georgia Viaduct or other non-desirable areas that have soil contamination issues. The latest version of the plan also started a discussion on adjusting the shape of Creekside Park to a narrow strip along False Creek to allow for more residential towers to be built in the area. It is disconcerting to discuss such ideas without understanding the impacts to the function of the public space considering the large amounts of contaminated soil that is to be dumped in Creekside Park. Essentially, designing the space without doing a proper analysis will inevitably result in an outcome that is not planned or desired. There is also fear that defining a narrow strip with adjacent condo towers will resemble the same type of contrived experience along North False Creek. This proposal would not deliver the long-awaited large feature greenspace providing a needed east-west gateway the current East Vancouver residents have been anticipating. We also understand that the High Level Review has only identified 5 acres of new open space much less than an anticipated 20 acres that would typically be provided in a similar size development. We feel that this deficiency in public open space is unacceptable. The comparable existing North False Creek neighbourhood surrounding David Lam Park have been designed to have the typical 2.75ac of public open space for each 1000 residents. This neighbourhood is a world-renowned example for liveability and urban development, and has won numerous awards for its high quality and plentiful public open spaces. It is incomprehensible that the NEFC High Level Review would propose a drastic departure from this respected urban example and reduce the amount of public space. To remain a desirable place to live, attract people, business and tourists, Vancouver must continue to retain and develop a variety of open spaces to allow for a diverse range of activities and possibilities. 3. Public Amenities The VPSN is concerned that the High Level Review has identified inadequate public amenities needed for the proposed density or land uses. The public benefit/amenity strategy described in the Review process is limited in range and detail. This is unfortunate because it is clear that Vancouverites, particularly in the downtown peninsula, require more daycare, playground space, sports fields and programmed community activity spaces like the Roundhouse Community Centre. The success of the Roundhouse is an indication that indoor community spaces are needed for downtown residential areas. These are needs that, even in the absence of any residential development in the NEFC area, will only increase in the coming years. With thousands of new residents projected in NEFC 4
these needs will be exacerbated. The proposed plan has not identified any new community centres. The Roundhouse is already overbooked and over capacity forcing people to drive to other areas of the city. This oversight deeply erodes the objective to provide residents with local services and amenities and will jeopardize the sustainability of high density living in Downtown. * * * Thank you again for the opportunity to provide feedback on the High Level Review. We hope our feedback can be taken in the spirit of constructive criticism and with a view to trying to make an important project the best that it can be. Submitted Respectfully On Behalf of the Vancouver Public Space Network. Yours truly, Adam Vasilevich Coordinator, Urban Design Working Group c.c Paula Huber, Project Planner Central Area Planning City of Vancouver Debra L. Bodner, Planning Assistant Central Area Planning City of Vancouver Box 2754 Station Terminal 349 West Georgia Street Vancouver, BC, V6B 3X2 5