HomeMy WebLinkAboutDTS-07-082 - Design Option for Pedestrian Scale Lighting - Queen Street South Reconstruction Projectii
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REPORT
Report To: Development and Technical Services Committee
Date of Meeting: May 28, 2007
Submitted By: Jeff Willmer, Director of Planning (741-2325)
Prepared By: Ken Carmichael, Supervisor of Traffic and Parking Services
(741-2372)
Leon Bensason, Heritage Planner (741-2306)
Ryan Mounsey, Senior Planner (741-2324)
Ward(s) Involved: Ward 6 West -Victoria Park
Date of Report: May 24, 2007
Report No.: DTS-07-082
Subject: Design Option for Pedestrian Scale Lighting
Queen Street South Reconstruction Project
RECOMMENDATION:
A. THAT staff be directed to request that the Region of Waterloo Highland Road/Queen Street
Reconstruction Project Team prepare a streetscape concept option with pedestrian-scale
lighting as a provisional item in the contract/tender documents to provide future flexibility for
Council to considerthis option, subject to funding availability;
B. THAT final approval of pedestrian-scale lighting on Queen Street, between Courtland Avenue
and Highland Road be referred to the 2008 capital budget process; and further
C. THAT staff be directed to engage in discussions between the City and Region to explore a
more equitable cost-sharing agreement to promote pedestrian-scale lighting along Regional
Roads, particularly related to operating costs.
EXECUTIVE SUMMARY:
The Section of Queen Street located between Courtland Avenue and Highland Road is
designated a Regional Arterial Road. The Region of Waterloo has established a project team
with City staff for the Queen/Highland reconstruction project. The City representatives include
Ken Carmichael, Leon Bensason and Ryan Mounsey. The project team was established last
year to identify and recommend infrastructure improvements along portions of Queen Street
South between Courtland Avenue and Highland Road and a small portion of Highland Road
West shown in Appendix A. The Region will be hosting a public information meeting (PIC) on
June 19th to present four reconstruction options as part of the Environmental Assessment
process. Construction is expected to start in early 2008. Presently, the Region and City have
allocated monies to improve basic road infrastructure components including sanitary sewer
improvements, water improvements, new curbing and minor streetscape improvements.
Pedestrian-scale lighting was not considered as part of the original project costs.
Given its history and context, Queen Street is a unique boulevard in the City. New development
including reconstruction projects is subject to City-approved design guidelines including the
Victoria Park Heritage Conservation District Plan, which recommends pedestrian-scale lighting
along Queen Street and the Design Brief for Mixed Use Corridors. Under the current process
the City would be responsible for all capital and operating costs associated with pedestrian-
scale lighting. A preliminary cost estimate indicates that the total upset capital cost to introduce
pedestrian-scale lighting between Courtland Avenue to Highland Road is $800,000.00 excluding
any metal-halide replacement costs. Prior to moving forward to the first public meeting,
Regional staff have requested a formal response from the City of Kitchener to acknowledge the
status of pedestrian-scale lighting along this stretch of Queen Street.
City staff would like to present this report for information purposes along with discussion and
direction to advise the project team to prepare a concept option for pedestrian scale lighting
along Queen Street. It is recommended that the final decision be referred to the capital budget
process so that this project may be prioritized in that context and the availability of funding may
be ascertained in that context. It is anticipated that the reconstruction project will commence in
early 2008.
BACKGROUND:
The Region of Waterloo has established a Project Team to evaluate reconstruction options for a
portion of Queen Street and Highland Road. The Project Team has identified four options noted
below:
• Alternative 1: Reconstruct Queen Street South in its current configuration ado nothing
option).
• Alternative 2: Reconstruct Queen Street South with a continuous centre left turn lane, a
single northbound lane and a single southbound lane. Sidewalks would be reconstructed
in approximately their current location. A minimum 1 metre wide landscape boulevard
would be maintained.
• Alternative 3 Preferred): Reconstruct Queen Street South with anon-continuous centre
median, a single northbound lane and a single southbound lane. Sidewalks would be
reconstructed in approximately their current location. A minimum 1 metre wide
landscape boulevard would be maintained.
• Alterative 4: Reconstruct Queen Street with a continuous centre median, a single
northbound lane and a single southbound lane. Sidewalks would be reconstructed in
approximately their current location. A minimum 1 metre wide landscape boulevard
would be maintained.
It should be noted that the Project Team did not consider afour-lane cross section along this
portion of Queen Street. This option was not supported in the past and would have a significant
impact on the existing vegetation street trees} along Queen Street. Consequently, the
reconstruction options are limited to a two or three-lane street cross section with minimal
changes to the existing curb line location. Expanding the curb lines would result in negative
impacts to existing vegetation. Given this constraint, there is insufficient width to accommodate
dedicated bike lanes along Queen Street. As an alternative, the Project Team recommends that
the preferred options provide wider travel lanes to function as shared laneways for vehicular
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traffic and cycling. Queen Street is not identified as a Regional or City bikeway route; however,
it does provide a major connection to the Iron Horse Trail.
Preferred Reconstruction Option
City staff has reviewed the four design options prepared by the Regional project team and
recommend that Option 3 provides the best design option for the City identified in Appendix B.
In staff s opinion, this option provides a balanced approach to mitigate traffic concerns/capacity
and provides a unique opportunity to address key design recommendations established in the
Victoria Park Heritage Conservation District Plan and Mixed Use Corridor Design Brief.
Design Considerations (Streetscape) and Justification
Queen Street is a historic boulevard in the City and functions as a major gateway into the
Downtown. The physical design and character of Queen Street is clearly described in the
Victoria Park Heritage District Conservation Plan and the Design Brief for Mixed Use Corridors.
Both of these studies recommend pedestrian-scale lighting along Queen Street. In staff's
opinion, the primary rationale to support pedestrian-scale lighting along this stretch of Queen
Street is noted below:
1. Consistency: Queen Street is one of the oldest streets in the City and has a distinct
streetscape character established primarily through its unique landscaped medians and
existing pedestrian-scale lighting located along street sections outside the downtown
boundary. This includes the historic globe lighting between Lancaster and Ellen Streets
on Queen Street North; and the luminaires within the centre island along Queen's
Boulevard. Adding pedestrian scale lighting along Queen Street within the study area
would "complete" the corridor and create a consistent streetscape character extending
from Lancaster Street through to St.Mary's Hospital.
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Mature street trees, pedestrian scale lighting and a landscaped median are distinct elements
along Queen Street
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2. Unified Civic Image identified in the On-
Lighting Downtown Study: In 1999, City
Council approved the On-Lighting Downtown
Study which provides the basis for lighting
design in the Downtown and its surrounding
neighbourhoods. This Study identifies
Queen Street as a Civic Street from
Lancaster through to the Schneider Haus.
The study asserts that the "overall design of
this civic street should be of a dignified and
well-ordered streetscape which still
incorporates variety. Long views,
architecture of significance, and skyline
features should be enhanced to form the
street's primary character. The study
recommends that this language of fixture
globe lights} be confirmed and used in the
lighting designs for these streets in uniting
the Downtown as a whole". Gaukel Street is
also identified as a Civic Street and is
currently being reconstructed with globe
lighting. A strong, unified image of civic
streets would be created if globe lighting was
introduced along this section of Queen
Street.
3. Implements the Victoria Park Heritage
Conservation District Plan. The
Victoria Park Heritage Conservation
District Plan was approved by City
Council in 1996. The Plan recognized
that the installation of pedestrian-scale
lighting along Queen Street South
would serve to maintain and reinforce
the historic streetscape character along
Queen Street, and specifically
recommended the installation of globe
luminaires. The Plan also recommends
that new gateway piers and entrance
features be introduced at prominent
street intersections. The Plan states
that streetscape opportunities would be
reviewed through the road
reconstruction process.
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4. Implements the Mixed Use Corridor Design Brief. The Mixed Use Corridor Design
Brief states the City's design and development expectations within the Mixed Use
Corridor land use designation. The Design Brief was approved by City Council in 2005
and includes detailed design strategies for specific corridors including Queen Street. Of
note, the Vision Statement for Queen Street respects the Victoria Park Heritage
Conservation District Plan recommendations by emphasizing pedestrian-scale
streetscape elements. The design strategy also recommends a separate pedestrian
refuge crossing at the Iron Horse Trail and encourages enhanced streetscape
treatments along this corridor. The Design Brief was also applied to the King Street East
reconstruction project (2006) and proved to be a critical tool to implement the design
objectives through the road reconstruction process.
"Corridor Vision: Queen Street is a historically significant boulevard that has a pedestrian scale
streetscape reinforced with a compatible blend of old and new buildings and street trees. "
"Lighting: Civic Street. Introduce pedestrian scale lighting along Queen Street and Courtland Avenue
between Queen Street and David Street. "
5. Pedestrians First: A higher level of pedestrian-scale design is strongly encouraged
along Queen Street to maintain and improve the quality of the public realm and
pedestrian experience given the historical character along this transit corridor as well as
the connections to major pedestrian destinations such as the Iron Horse Trail, the
Downtown and surrounding neighbourhoods which are experiencing significant
intensification. Examples include 90 Woodside (intowns, 133 townhouse units), the
Drewlo apartment building located at 540 Queen Street south (214 residential units), a
planned 6-storey mixed use development adjacent to the Iron Horse Trail (25 units) and
the Arrow Lofts (380 residential units). An enhanced streetscape design with
pedestrian-scale lighting would create a strong pedestrian environment reinforced
through the City's Pedestrian Charter.
6. Gateway: Lastly, the recommended streetscape improvements would create a distinct
and unified entrance (gateway) into the downtown.
The Key Issues
The primary issues associated with introducing pedestrian-scale lighting into this project are
noted below.
1. Timing: Road reconstruction projects provide the best opportunity to integrate new
infrastructure and streetscape design features. On average, these projects occur once
every 20-40 years for resurfacing and up to 75 years for reconstruction projects.
Significant construction costs are incurred when streetscape improvements are not
timed with reconstruction projects. The Queen Street reconstruction project represents
the best time to introduce pedestrian-scale lighting.
2. Precedents: In 1999, City Council resolved to consider pedestrian-scale lighting only
within the downtown district boundary. In the past few years, pedestrian-scale lighting
was not supported in the HenrylTheresa reconstruction project located in the Victoria
Park Heritage Conservation District and the Church Street reconstruction project located
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in the Cedar Hill neighbourhood. Even though Queen Street is unique in the city (given
its historic character and design direction) there may be other road reconstruction
projects that deserve consideration for pedestrian-scale lighting. It should be noted that
the City has evolved over the last several years and now places a much greater
emphasis on creating healthy, vibrant communities with active streets and incorporating
good urban design principles into development projects. Staff recommends that each
project should be considered on an individual site-specific basis and through thorough
discussion, review and analysis.
3. Costs: A primary issue associated with this project is financial implications to the City.
Under current policy, the City is directly responsible for all capital and operating costs
associated with pedestrian-scale lighting. This option, based on a preliminary lighting
design analysis determined in Appendix C, would require the installation of 87
pedestrian scale globe lights staggered on 15 metre intervals at a maximum upset cost
capital) of $800,000.00 excluding any metal-halide fixture costs. This cost also includes
costs related to supplemental roadway lighting and contingency costs. The City would
be responsible for maintenance costs which are higher for the recommended metal-
halide fixtures. Additional analysis is required to identify the potential operating cost
implications. In staff's opinion, greater discussion between the City and Region is
warranted to provide a more equitable cost-sharing agreement to promote pedestrian-
scale lighting along Regional Roads, particularly related to operating costs. City staff
recommend that the final decision be referred to the 2008 capital budget process so that
funding options and relative priority may be fully explored in that context. This does not
present a problem for the project schedule as the works would not commence until 2008
at the earliest.
AGENCY COMMENTS:
Queen Street South is a Regional Road and is subject to the Regional Municipality of Waterloo
Illumination Policy. The Regional Illumination Policy does not recognize pedestrian-scale
lighting as a regional standard. Local municipalities are responsible for the capital and
operating costs associated with this type of lighting. Based on the last project team meeting
held on May 1St, the Region seeks formal direction from the City of Kitchener to consider
opportunity for pedestrian scale lighting.
FINANCIAL IMPLICATIONS:
Basic infrastructure capital costs have been committed by the City for this project. Additional
capital and operating costs would be assumed by the City if pedestrian-scale lighting were to be
added into the road reconstruction project. A preliminary cost estimate capital cost) analysis
attached in Appendix C indicates that the maximum upset limit to introduce pedestrian-scale
lighting along Queen Street is $800,000.00 excluding metal-halide replacement costs plus any
associated operating costs. At present, there is no c/c funding available for new capital projects
in the capital pool until 2012. Any new capital project will need to be incorporated into the 2008
capital budget process and will only be implemented subject to new project prioritization or
should additional funding be identified. The City project team members have also agreed to
partner with the Region and to contribute to several streetscape enhancements to be confirmed
through the Environmental Assessment process. The Region has identified an additional
streetscape cost of $40,000-$50,000. This cost can be financed through the Planning Division's
Urban Design Budget and the Heritage District Plan Implementation Budget.
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Under the current Regional illumination policy, the City of Kitchener would also be responsible
for any operating cost associated with the pedestrian-scale lighting. In staff's opinion, greater
discussion between the City and Region is warranted to provide a more equitable cost-sharing
agreement to promote pedestrian-scale lighting along Regional Roads particularly related to
operating costs.
COMMUNICATIONS:
The reconstruction project is located on a Regional Road and is subject to the Environmental
Assessment notification process. All communications are being administered by the Regional
Municipality of Waterloo. The first Public Information Meeting is planned in June 2007.
CONCLUSION:
Queen Street South is a historic boulevard in the City reinforced through the Victoria Park
Heritage Conservation District Plan and the Mixed Use Corridor Design Brief. City staff have
identified the need to consider pedestrian-scale lighting along Queen Street as part of the
Highland Road/Queen Street reconstruction project.
The Region has scheduled a public information meeting in June. Prior to this meeting, Regional
staff have requested direction from the City of Kitchener confirming the status of pedestrian-
scale lighting along this stretch of Queen Street. City Staff recommend the globe light fixture
with a maximum upset cost of $800,000.00 excluding metal-halide replacement costs plus any
associated operating cost.
City staff are recommending that the road reconstruction project presents a unique opportunity
to install pedestrian-scale lighting on Queen Street particularly as it relates to creating a
consistent, unified image along Queen Street and to implement several Council approved
studies that recommend pedestrian-scale lighting along Queen Street.
If Council supports the Report recommendations, this decision would be referred to the 2008
capital budget process. If supported, the project would be funded through the reprioritization of
other projects or through new funding. This decision would also have some precedent setting
implications for pedestrian-scale lighting outside the downtown boundary. Staff recommends
that these considerations be evaluated on asite-specific basis and through thorough discussion,
review and analysis.
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Ken Carmichael, CET Leon Bensason, MCIP, RPP
Supervisor of Traffic and Parking Services Heritage Planner
Ryan Mounsey, BES, MCIP, RPP
Senior Planner Urban Design)
Appendices:
Appendix A: Study Area
Appendix B: Preferred Reconstruction Option (Alternative 3)
Appendix C: Preliminary (Capital) (Cost Estimate
c.c Christina Weylie, Ward 6 Councillor
Geoff Lorentz, Ward 5 Councilor
John McBride, Director of Transportation Planning
Jim Wideman, Regional Councillor
Mike Halloran, Project Manager, Regional Municipality of Waterloo
Steve Knipping, Walter Fedy Partnership
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APPENDIX A
STUDY AREA
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Preferred Reconstruction Option (AIt.3)
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Preliminary (Capital) Cost Estimate
1.0 Basic Cost Information
1.1 Pedestrian Scale Lights (LPC2 lights)
• Basic LPC2 globe light: $2,400 per pole
• Basic LPC2 pre-cast base: $300 per pole
• Basic pole installation: $2,000 per pole
• Hydro connection cost: $1,000 per pole
• Total approximately cost for each LPC2 pole: $6,000-$7,000
• Additional costs for conduits x$40/m for 1,350m)
1.2 Separate costs for LPD (street lights) lighting if required to compensate insufficient
roadway lighting. Potential for:
• LPD Pole and KAD lights: $1700 per pole
• Same installation costs
2.0 Preliminary Cost Estimate for Queen Street
Preliminary analysis has identified:
• Potential for 87 LPC2 pedestrian globe lights) - $208,800
• Potential for 19 LPD standard street lights) $ 32,300
• 87 pre-cast bases $26,100
• 106 pre-cast bases with installation $212,000
• Hyyro connection costs $106,000
• Conduit costs $67,500
• Subtotal $652,700
• Continaency (20%) $130,540
• Total upset cost $783,240
The LPC2 poles are spaced on a staggered pattern at approximately 15m intervals
The LPD poles are spaced on a staggered pattern at approximately 35-40m intervals.
Note: the Region of Waterloo is currently reviewing the potential cost implications associated
with roadway lighting costs. Preliminary estimates from the City indicate that the total cost
associated with adding supplemental street level LPD lighting is approximately $107,000.00.
The Region is currently reviewing the cost implications for metal-halide fixture replacements on
existing light poles.
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