HomeMy WebLinkAboutCSD-14-088 - Planning Around Rapid Transit Stations - PARTS - Phase 2: Urban Design Breif - City-Initiated Urban Design Manual Amendment Staff Report
I rTC'.�► t .R Community Services Department wmkitchener.ca
REPORT TO: Community & Infrastructure Services Committee
DATE OF MEETING: September 8, 2014
SUBMITTED BY: Alain Pinard, Director of Planning
PREPARED BY: D. Lafferty, Planner(Urban Design) 519-741-2200 x 7324
L. Ross, Urban Designer 519-741-2200 x 7427
WARDS INVOLVED: Wards 3, 9 and 10
DATE OF REPORT: August 11, 2014
REPORT NO.: CSD-14-088
SUBJECT: PLANNING AROUND RAPID TRANSIT STATIONS (PARTS)
PHASE 2: URBAN DESIGN BRIEF
CITY-INITIATED URBAN DESIGN MANUAL AMENDMENT
RECOMMENDATION:
That the City-initiated amendment to Part B of the Urban Design Manual for the purpose
of establishing design guidelines for the Central Transit Corridor and rapid transit
Station Study Areas in Kitchener, be approved, in the form shown in the attached
"Planning Around Rapid Transit Stations (PARTS) Design Brief" attached as Appendix A
to Report CSD-14-088.
BACKGROUND:
The Planning Around Rapid Transit Stations (PARTS) project was introduced to Council through
report CSD-12-150 at the November 12, 2012 Council Strategy Session. PARTS Phase 1
concluded in December 2013 with report CSD-13-104 wherein Council endorsed that staff
proceed with PARTS Phase 2 and Station Study Area Plans. This report pertains to one of the
five corridor-wide initiatives outlined for Phase 2.
REPORT:
Higher order transit, including Light Rail Transit (LRT), has the potential to be a major factor in
the long-term growth and continued economic prosperity of our area. With it comes the potential
for change in the areas close to the stations. In order to ensure the proper framework to guide
growth and ensure stability in these locations, the City has started a detailed and
comprehensive planning initiative referred to as the Planning Around Rapid Transit Stations
(PARTS) project. The PARTS Phase 1: Project Plan and Background Report identified five
corridor-wide initiatives to be completed in advance of starting the first Station Study Area Plan.
The first initiative to be completed in Phase 2 was the Communications Approach and was
considered by Committee on April 28, 2014. Following the Communications Approach the
Interim Direction was considered by the Committee on May 12, 2014. This report is related to
the third of the five corridor-wide initiatives: Urban Design Guidelines.
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Figure 1: Planning Around Rapid Transit Stations (PARTS) Project Plan
Phase 1: Project Plan and Background Report
2013
Phase 2: Corridor-wide Initiatives -2014
Interim Communications Sanitary Transportation
Direction - Approach — Sewer Demand
Completed Completed Capacity Management
May 12 April 28 Analysis
(CSD-14-032) (CSD-14-025)
Station Study Area Plan
Central Midtown Rockway Fairway Block Line
2014-2015 2015-2016 2015-2016 2016-2017 2016-2017
Within the Central Transit Corridor and around the rapid transit stations (referred to as Station
Study Areas for the PARTS project) there are many distinct neighbourhoods with a wide range
of existing and permitted land uses. The potential for change in these areas is significant, and it
is critical that change be managed carefully in key locations, and to conserve stable
neighbourhoods. The City of Kitchener is moving forward with the PARTS project to complete
the updated framework to guide development proposals and future capital projects in these
areas. As it will take several years to complete and implement the specific plans for each area,
a corridor-wide Urban Design Brief will provide an implementation link between the policies,
such as the recent Interim Direction Official Plan Amendment, and the review of development
proposals to assist with the conservation of stable residential neighbourhoods and to not
prejudice the long-term objectives for growth and development close to the rapid transit stations.
PARTS Urban Design Brief
The main purpose of the Urban Design Brief is to implement new transit oriented urban design
guidelines and to provide general direction in reviewing development applications within the
Station Study Areas. The guidelines will provide the design direction for considering compatible
development in advance of the completion of Station Area Plans along with providing stronger
guidance for any proposals within existing residential areas to ensure they are appropriate.
The proposed Design Brief includes corridor-wide, high-level design guidelines to achieve the
planned function of the Central Transit Corridor in Kitchener. This includes direction to support
transit and rapid transit through focusing and accommodating growth in a compact urban form,
providing connectivity for all modes of transportation, achieving a mixture of land uses, and
having streetscapes and built form that are oriented to pedestrians and to transit facilities.
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The PARTS Urban Design Brief will also provide direction for a design-based approach to the
preparation of the Station Area Plans themselves. The intent is to amend the Brief with detailed
guidelines, standards and streetscape plans that are specific to individual Station Areas once
the upcoming plans are complete.
The Brief contains guidelines that align with the goals from Phase 1 of the overall PARTS
project. Below is a summary of the guidelines for the five goals.
Managing Growth and Change
The guidelines in this section of the Brief are intended to concentrate new development and
highest densities close to the stations, reinforce the establishment of minimum densities for
Focus Areas, deal with development patterns such as the transition of density towards the
Influence Areas and manage that any infill must respect the characteristics of existing areas.
Ensure a Mix of Land Uses
Guidelines in this section provide direction for the location of transit-supportive uses, the
creation of a variety of destination uses, and establishing a framework for the mixing of uses
within a building including active uses at street-level.
Enhance Transportation Choice and Connectivity
The guidelines related to this goal are intended to continue to highlight the importance of an
interconnected street fabric and transportation network for all modes of travel, prioritize
pedestrian routes and comfortable environments and incorporate the inter-relationship with
transportation demand management and parking.
Enhance Placemaking, Safety and Community Design
New places, spaces and neighbourhoods will emerge and be shaped in areas around the rapid
transit stations. To ensure that each of these is successful and vibrant, the design of Station
Study Areas must carefully integrate matters of built form, architecture, public realm,
streetscape, place making, safety and universally-accessible design. Guidelines in this section
will help create healthy, identifiable developments that reflect our natural heritage and cultural
richness. New design should not only "raise the bar" architecturally but should also be more
"green", diverse and inclusive.
Guide Public and Private Investment
Light Rail Transit is a significant catalyst for shaping the built form and streetscapes of our
community into the future. Additional strategic investments in infrastructure and the public realm
in the areas beyond the LRT line and stations can potentially provide further amenities to
leverage an area's marketability and livability. This section provides guidelines to direct a few
specific aspects of public and private investment in Station Areas.
Applicability of the PARTS Urban Design Brief
The recommended approach is to amend the City's Urban Design Manual to include the PARTS
Urban Design Brief within Part B of the document. It is proposed that this Design Brief will apply
to the rapid transit Station Study Areas within the Central Transit Corridor using the accepted
walking distance of approximately 800 metres from each rapid transit station (note: the
Sportsworld Station Study Area is not within the scope of this initiative). To avoid duplication or
overlap with existing design briefs, the PARTS Urban Design Brief will apply only to lands within
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the Central Transit Corridor/PARTS Area that are not located within either the `Downtown' or
`Mixed Use Corridors' as these areas are already governed by existing detailed Design Briefs.
The map provided in Figure 2 below illustrates the area where the PARTS Design Brief will
apply (light purple). The Mixed Use Corridor Design Brief and the Downtown Design Brief will
continue to be used until the specific Station Area Plans are complete and a "streamlining"
process occurs through the future comprehensive review of the Urban Design Manual.
Figure 2: PARTS Corridor-Wide Urban Design Brief—Applicable Area
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The PARTS Phase 1 reports identified lands within the Station Study Areas as being in either a
Focus Area or an Influence Area. Focus Areas were identified as locations which, due to their
proximity to the station stop, require further study to determine how and where intensification
should occur to support the rapid transit system and the planned function of lands within the
Central Transit Corridor. Influence Areas are lands that are further away from stations but still
contribute to the role and function of the Station Study Area. Although these areas are not the
primary location for change, they may provide opportunities for minor infilling where appropriate.
The corridor-wide guidelines within the PARTS Urban Design Brief recognize that not all lands
within the Station Study Areas are appropriate locations for redevelopment and intensification
and that conservation of stable neighbourhoods is critical. The term `stable residential
neighbourhoods' is meant to refer to existing residential neighbourhoods which are not
conceptually considered to be priority candidate areas for redevelopment or intensification in the
near future. While the Station Area planning exercise may formally delineate these areas in the
future, it is meant to apply broadly at this time.
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ALIGNMENT WITH CITY OF KITCHENER STRATEGIC PLAN:
The PARTS Phase 2 Urban Design Brief aligns with several Community Priorities in the City's
Strategic Plan: "Quality of Life", "Development" and "Environment".
FINANCIAL IMPLICATIONS:
No new or additional capital budget requests are expected with this recommendation.
COMMUNITY ENGAGEMENT:
INFORM and CONSULT - On June 26, 2014 City staff held an information session for members
of the development industry, special interest groups and local stakeholders in the PARTS study
area. Copies of the draft Design Brief were circulated for review and comment and the draft
document was made available on the City's PARTS website. Additionally, an update email was
sent to the Waterloo Region Home Builders' Liaison Committee in July advising of the
availability of the draft PARTS Urban Design Brief and the September 8th Committee meeting.
One response was received that highlighted items regarding where the brief would
geographically apply, the need for high level direction versus specifics for each area, and
several other suggestions. Staff confirms that these items were considered in the preparation
and direction for this Design Brief and father clarifications were added to the final version.
This staff report and the PARTS Urban Design Brief were posted on the PARTS website and
the City's website with the agenda in advance of the council / committee meeting.
CONCLUSION:
The PARTS Urban Design Brief will provide high-level, corridor-wide direction for the
preparation of individual Station Area Plans with specific standards and streetscape plans for
each area to be added upon completion of the upcoming plans. The Brief also indicates transit-
oriented, design guidelines for the review of development proposals within the Station Study
Areas and is an additional tool to help ensure that incompatible development proposals do not
disrupt stable residential neighbourhoods.
REVIEWED BY: Brandon Sloan, Manager, Long Range and Policy Planning
Adam Clark, Design & Visualization Analyst
Brian Bateman, Senior Planner
ACKNOWLEDGED BY: Kim Kugler, Acting Deputy CAO (Community Services)
ATTACHMENTS:
Appendix "A" — Planning Around Rapid Transit Stations (PARTS) Design Brief
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PLANNING AROUND RAPIDTRANSIT
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framework to leverage investment and to help shape
how communities will be planned and built around the
rapid transit system. The CBS identifies key directions
for community building, placemaking and moving
Introduction people within, to, and from the central transit corridor.
It is desirable and important to have Station Study
The ION rapid transit system will link Waterloo, Areas Plans that will provide direction and guidance
Kitchener and Cambridge through a central transit for growth and redevelopment in the Station Study
corridor (CTC). There are a number of station stops Areas; to ensure that development and investments
identified in Kitchener. Along with improving access to support and sustain the rapid transit system and allow
existing places, the CTC will become the focus for new for the effective prioritization of supporting
medium and high density residential, retail, infrastructure.
commercial and employment uses and support the
concentration of existing and planned residents and Station Study Areas
jobs. Comprehensive planning around all station areas
will be a key to ensuring that new development Through the CBS, an initial Corridor Wide Stations
positively contributes to our urban environment. Study Area was identified as an 800m walking
Direction for the planning around station areas comes distance radii from the transit system, which was
further refined by the City of Kitchener in Phase 1 of
from several higher order policy and strategy
documents, as illustrated below. These policies PARTS to identify the following Station Study Areas:
include: Places to Grow, Provincial Policy Statement, Central
Regional Official Plan (ROP), Community Building • Midtown
Strategy (CBS), City of Kitchener Official Plan (OP),
and Planning Around Rapid Transit Stations (PARTS). R
• Fairway
• Block Line
Sportsworld
This refinement also identified Focus and Influence
Areas at each station stop. Focus areas are those
lands, which due to their proximity to a station stop will
be a significant focus of potential change and thus will
Il t require further study in the immediate term (2014-
m�(tgo
2017). Influence areas are further away from the
station stop, but still contribute to the role and function
of the station study areas. Influence areas will not be
the focus of change, but may provide opportunities for
minor infilling where deemed appropriate.
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The Regional Official Plan (ROP) outlines the criteria � �
that must be included in the plans for each Station ti
Area, and the City's Official Plan (OP) includes new
transit supportive policies that provide direction to �
future development within these areas and outlines
their planned function. The Community Building
Strategy (CBS) is a Region of Waterloo initiated
2014 City of Kitchener Urban Design Manual—Part B: Design Briefs B-1
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Vision for PARTS Corridor-Wide General Guidelines
"Together, through a comprehensive and collaborative Manage Growth and Change
public planning process, we will build well-connected, Focusing and directing growth within Station Areas
innovative, vibrant, inviting and inclusive station areas reinforces and optimizes public infrastructure
in which to live, work, shop, study and play." investments, builds compact, sustainable and
complete communities and encourages transit use.
This vision builds on the Kitchener Strategic Plan,
contributes to the land use vision for the City contained
in the new Official Plan and will help guide the Station M �
Study Area Plans. ' ":egg
Goals for PARTS
,
To Kitchener lwereh vision, high-level goals sp
created to help guide the Station Study '
,
Area Plans. These goals are:
• Manage Growth and Change Density and Development Patterns
• Ensure a Mix of Appropriate Land Uses Rapid Transit Station Areas will be planned, designed
Enhance Transportation Choice and Connectivity and developed to:
• Enhance Placemaking, Safety, Community Design
Guide Public and Private Investment Accommodate growth.
PARTS Urban Design Brief Outline Establish new density and development patterns
that are related to infrastructure and sustainable
The vision, goals and general guidelines will provide development considerations.
some consistency across the Station Study Areas as . Concentrate new development and highest
there are many common guidelines. The purpose of densities close to the stations. In some instances
this Urban Design Brief is to: this may be more appropriate at other key
locations within the Focus Area in order to reflect
• provide direction for a design-based approach to existing conditions, constraints or to reduce
the preparation of Station Area Plans/Secondary conflicts.
Plans for each Station Area;
• Establish minimum density targets within each
• be refined with specific guidelines, standards and Focus Area that reflects the desired urban
streetscape plans through the completion of each condition for the area and that considers the range
Station Area Plan/Secondary Plan; of targets within the entire corridor and the city.
• provide additional design direction for conserving 0 Transition from higher intensity development in the
stable neighbourhoods; and Focus Area to a less intense development pattern
in the Influence Area.
• provide further design direction in the review of
development applications in these areas.
This Design Brief will apply to all Kitchener Rapid
Transit Station Study Areas with the exception of
Sportsworld. In the interim, this Brief will not apply to
the Mixed Use Corridors or Downtown as those areas 0 Permit infill and redevelopment in Influence Areas
already have detailed design briefs which will continue where the characteristics of the existing
to apply until a future consolidation/Urban Design neighbourhood is respected including building
Manual review. scale, height, massing, orientation, setback,
architectural elements and materials.
2014 City of Kitchener Urban Design Manual—Part B: Design Briefs B-2
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Ensure a Mix of Land Uses Enhance Transportation Choice and
The type and mixture of land uses within the Station Connectivity
Areas will help create a sense of place and encourage The success of the rapid transit system and station
a shift towards more sustainable modes of study areas will be influenced by many factors
transportation and movement. including the provision of a range of inter-connected
transportation options that are efficient, convenient,
Station Areas will contain different land uses. Some enjoyable, safe, easily navigable, continuous and
locations are, and will continue to be, significant areas barrier-free. Transportation Demand Management
for employment, residential or other uses. Some areas measures will be critical.
will evolve into a new range of uses, including mixed
use. The evolution of land uses within each Station Street Fabric, Pedestrian Priority and Parking
Area will occur at different rates throughout time.
• New streets, laneways, pedestrian and cycling
The transition to an appropriate mix of land uses within connections should be provided to achieve a
each Station Area will help generate transit ridership, highly connected network that offers route choice
reduce personal vehicle trips and contribute to a and creates new active transportation
complete and healthy community. opportunities.
ii
e Design safe, logical and efficient routes for
different modes of transportation, with priority
aM given to pedestrians.
Use parks and green space to provide pedestrian
and cycling links to transit stations to enhance
user experience.
✓ ��.--
1
T _ Provide enhanced, convenient pedestrian and
cycling infrastructure and amenities Preference is
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��,, to facilities that can be maintained year-round.
Identify locations to have wider than minimum
sidewalks in areas of high pedestrian
Transit Supportive Land Uses routes/volumes within Station Areas.
Rapid Transit Station Areas will be planned, designed
and built to: 0 Provide weather protection for transit users and
pedestrians where possible.
• Locate transit-supportive uses such as high and
medium density residential, office and mixed use, 0 Provide clear and consistent way finding elements.
within close proximity to the station stop. Uses that
are primarily auto-oriented and not conducive to a 0 Minimize vehicle and pedestrian points of conflict.
transit-supportive environment should be
discouraged in Focus Areas. • Vehicular access points should be controlled to
minimize disruption to traffic flow and new
• Include a variety of land uses to create multi- development may be required to share common
purpose destinations. driveways and provide for maneuverability
between sites.
• Establish a framework to encourage a mixture of
appropriate uses within buildings. Incorporate pedestrian, cycling, car sharing and
carpooling amenities to facilitate the
• Provide active, pedestrian-oriented uses at key implementation of Transportation Demand
locations including the ground-floor of buildings. Management measures.
2014 City of Kitchener Urban Design Manual—Part B: Design Briefs B-3
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• Establish parking standards that will complement Identify key intersections and sites in Station
the multi-modal transportation and pedestrian- Areas to concentrate building mass and locate
oriented design objectives, including maximum landmark buildings with distinctive design features.
parking rates where appropriate.
• Consider a `park once' environment to encourage
walking between activities/uses.
• Podium parking above the ground level may be
considered provided it includes active uses on the
ground level of main public street(s) and is well
integrated into the building design through
techniques such as vertical and horizontal Building height and setback requirements should
articulation, canopies, articulated entrances and include both maximums and minimums.
appropriately scaled landscaping.
• Maximum frontages may be limited to allow views
Enhance Placernaking, Safety and Community of significant landmarks, natural features, cultural
Design heritage resources, and to improve solar access
New places, spaces and neighbourhoods will emerge and pedestrian permeability.
and be shaped in areas around the rapid transit
stations. To ensure that each of these is successful Building design, particularly the ground floor
and vibrant, the design of station study areas must facades, should carefully consider the public
carefully integrate matters of built form, architecture, realm, include active uses and create a positive
public realm, streetscape, place making, safety and pedestrian experience.
universal design. Creating healthy, sustainable
communities that reflect our natural heritage and Orient buildings in commercial areas to contribute
cultural richness will require inspired and high quality to the streetscape and be easily identifiable,
design that is functional, diverse and inclusive. inviting, continuous and permeable.
I a r�
p�" f� �p r r Large retail tenant frontages should have several
�„ ' i retail units interjected into the street frontage.
p4 � Fagade treatments should increase visual interest.
Building height, built form, massing and
architectural detailing should be used to ensure a
compatible transition between new development
a, cr
and stable neighbourhoods.
Design infill to be rich in detail and enhance the
public realm while responding to the established
patterns of the street and neighbourhood.
Built orrr79 Architecture, Views, Vistas and skyline
• Respect natural and cultural heritage resources in • Encourage bird-friendly design and materials.
the design of built form. 0 Taller buildings should have a clear delineation
between podium, middle and top elements through
• Authentic and high quality design for building massing, materials and details to ensure towers
morphology, architectural detailing and material are distinct, recognizable, and visually appealing.
use is expected for all projects.
2014 City of Kitchener Urban Design Manual—Part B: Design Briefs B-4
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• Architectural variety between buildings is principles and adhere to Accessibility for Ontarians
encouraged and buildings should inter-relate in with Disabilities Act in Station Area Plans,
order to create complementary urban design. streetscape plans and development applications.
• Special emphasis on safety and universal design
will be applied at key locations near rapid transit
stations.
r� 4 Placernaking and Streetscapes
i� r A rr
,imp fand
Develop a placemaking vision along with
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Streetscape Master Plans for each Station Area
that recognizes character locations, including the
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heritage aspects of neighbourhoods. Include a
coordinated design for street furniture, transit
• Design street-facing residential buildings to include facilities, intersections, lighting, vegetation, way-
visually distinct units with separate entrances and finding and signage.
distinct delineation of public and private space.
• Create a focal point(s) for activity within each
• Design at-grade residential units to include Focus Area including features such as parks,
measures that provide adequate privacy from the plazas and gathering points.
public sidewalk/street so that privacy walls and
solid fences will not be required. 0 Integrate an appropriate range of public and
private open spaces within each Station Area.
• Rear and side facades that have a public view
should incorporate architectural detailing and 0 Concentrate amenities and the provision of street
include a quality of building material that is furniture near rapid transit stations and along key
approaching the primary facades. access routes.
• Maintain or create view corridors through and 0 Determine if special sign standards are required to
between sites to visually link Station Areas to the respect building scale, architectural features and
community, parks and open space systems. streetscape objectives.
• Create opportunities for sightlines and views to Sustainable Design
terminate at important features such as the station
stops, community buildings, monuments, public • New development/redevelopment should identify
art, and natural and cultural heritage resources. sustainable/"green" building techniques to be
implemented in the design and construction of
• Create an attractive skyline by providing a variety sites and buildings. This shall include, but not
of design expressions to articulate the top of tall limited to, energy and water conservation, waste
buildings, including articulated rooftop designs with management, environmental design, air quality
varying heights and setbacks. benefits, trip reductions, climate change mitigation
and adaptation, and other related techniques.
Buildings should address climate and seasonal
changes and consider the use of shade,
permeability, colour, light, greenery and natural
^' materials to address both summer and winter
conditions.
Safety, CPTED and Universal Design
• Reduce urban heat island effect through
• Utilize Universal Design and Crime Prevention landscaping, green/white roofs and other materials
Through Environmental Design (CPTED) that have a high solar reflective index (SRI).
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Guide Public and Private Investment Station Area Design Strategies
Light Rail Transit is a significant catalyst for shaping
the built form and streetscapes of our community into This section provides a unique design strategy for
the future. Additional strategic investments in the each rapid transit Station Area based on specific
infrastructure and public realm in the areas beyond the design objectives and includes detailed standards and
immediate LRT line and stations stops can potentially streetscape plans. Implementation will occur through
provide further amenities to leverage an area's municipal and public capital infrastructure projects, the
marketability and livability. development review process and other partnership or
innovative methods.
• Determine and prioritize capital investments in
streetscape improvements to enhance the public
realm, connectivity and livability as part of the Central Station Area
development catalyst package. Place emphasis on Objectives
one or two key strategic investments in each Guidelines/Standards
Station Area within the first 10 years of LRT. Streetscape Faster Plans
• Investigate the feasibility of streetscape and Town Station Area
connectivity enhancements during the
replacement/upgrade of any hard infrastructure Objectives
(sewers, roads, etc.). Guidelines/Standards
Streetscape Faster Plans
• Strategically locate, design and build new or
revised urban and green public spaces, including Rockway Station Area
parks, within each Station Area to provide needed Objectives
outdoor amenities for development, focal points for Guidelines/Standards
gathering and social activity, and to contribute to Streetscape Faster Plans
healthy and complete communities. Utilize semi-
public and private urban and green spaces where Fairway Station Area
appropriate to supplement the need for such
spaces in Focus Areas for intensification. Guidelines
/Standards
• Follow a public and private public art investment Streetscape Faster Plans
strategy to strategically locate art in visible
locations within each Station Area. Coordinate with Block Line Station Area
tourism, heritage, way-finding and place-making. Objectives
Guidelines/Standards
Streetscape Faster Plans
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