Civic Centre

SL

\"'C:..t« B.C

VANCOUVER
TOWN PLANNING COMMISSION

JANUARY, 1946

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in 2011 with funding from

City of Vancouver Archives

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A PRELIMINARY REPORT

UPON

PUBLIC BUILDINGS

AND

CIVIC CENTRE

YANCOUVER, BRITISH COLUMBIA

VANCOUVER

TOWN PLANNING

COMMISSION

VANCOUVER, BRITISH COLUMBIA

VANCOUVER B.C

HARLAND BARTHOLOMEW AND ASSOCIATES
Town Planning Consultant?
St. Louis, Missouri

29th June. 1945

Price: $0.25

VANCOUVER CITY COUNCIL
1945

Mayor, J. W. Cornett

Aldermen

John Bennett George Buscomde . H. L. Corey W. D. Greveli.

Charles Jones George C. Miller Jack Price Charles E. Thompson

City Officials

City Engineer • Charles E. Brakenridge, m.e.i.c.

City Comptroller. Frank Jones

Corporation Counsel D. E. McTaggart, b.a., k.c.

City Clerk Ronald Thompson

City Solicitor A. E. Lord. b.a.

Medical Health Officer S. Stewart Murray, m.d., d.p.h.

Building Inspector Andrew Haggast

VANCOUVER TOWN PLANNING COMMISSION

1945

Members

Charles T. Hamilton, b.a.sc, m.e.i.c., Chairman

H. V. Jackson, Vice-Chairman

Earl M. Bennett Frank E. Buck, b.s.a. J. C. McPherson

Joseph Bri<;.- F.N.Hamilton W.R.Owen

J. S. Porter, m.r.a.i.c.

Ex-Officio Members
Alderman H. L. Corey Representing Vancouver City Council

E. A. Cleveland, ll.d., m.e.i.c Chairman. Vancouver and Districts Joint

Sewerage and Drainage Board.

Don C. Brown Representing Board of Park Commissioners

Elmore Meredith, b.a Representing Board of School Trustees

F. \Y. G. Serc.ant Representing Vancouver Port Authority

Staff

1. Alexander Walker, b.a.sc, c.e., m.e.i.c. Executive Engineer
F. Marjorie Ross, Secretary

TOWN PLANNING CONSULTANTS

Harland Bartholomew and Associates
Harland Bartholomew Russell H. Riley

Eldridge H. Lovelace

Resident Engineer
J. Alexander Walker, b.a.sc, c.e., m.e.i.c

Staff, Vancouver
Elliot A. Schmidt, b.a.sc John H. F. Eassie

M. ISOBEL BEVERIDGE

ZONING BY-LAW BOARD OF APPEAL

W. Dalton, Chairman R. M. Edgar John Elliott, b.c.l.s.

Albert J. Harrison, Secretary

3

HARLAND BARTHOLOMEW AND ASSOCIATES
City Planners — Civil Engineers — Landscape Architects

2,\y North Eleventh Street
Saint Louis i, Missouri

29th June, 1945.

Town Planning Commission,
Vancouver, British Columbia.

Gentlemen :

We are pleased to submit the following report upon Public Buildings and a
Civic Centre. This is one of the series of reports comprising your revised Town
Plan.

This report contains an analysis of existing public buildings and of future
requirements for public buildings, and studies of the grouping of certain public
buildings in a Civic Centre adjacent to the central business district. This study
indicates the need for and the desirability of such a grouping of public buildings.
Vancouver has an unusual opportunity to develop a most outstanding arrangement
of public structures that would return many benefits to the people of the city.

We wish to gratefully acknowledge the assistance and co-operation that has
been given us by local officials and citizens in the preparation of this report.

Respectfully submitted,

HARLAND BARTHOLOMEW AND ASSOCIATES

h\ I far/and Bartholomezv

INTRODUCTION.

INDEX

Page

Advantages of Grouping Public Buildings ~

Need for Reappraisal 8

FACTORS AFFECTING THE LOCATION OF A CIVIC CENTRE

Proximity to Central Business District 9

Focal Position 9

Character of Site and Surroundings 9

Character of the Buildings 10

Miscellaneous Factors 10

PUBLIC BUILDING NEEDS IN VANCOUVER 11

Library — U

Museum Building 11

Art Gallery 11

Auditorium 11

School Offices and Central Vocational School 12

Federal Office Building - 12

Provincial Office Building 12

Citizens' War Memorial Building 12

Post Office 12

Court House.. 12

City Hall 13

CENTRAL BUSINESS DISTRICT AND P( ISSIBLE CIVIC CENTRE SITES 14

Location and Character of Business District 14

Area of Central Business District 15

Possible Location of Civic Centre Sites 15

Character of Surroundings 1"

Cost of Site - 18

Summary 18

SUGGESTED GROUPING OF PUBLIC BUILDINGS 1°

LIST OF PLATES

Page

Plate 1. Existing Land Uses in the Business District Facing page 9

Plate 2. Suggested Arrangement of Public Buildings on Central School Site 20

INTRODUCTION

•.Manx public buildings arc required in large cities. Some of these buildings,
such as schools and fire department stations, must be distributed throughout the
city where they can conveniently serve the surrounding residential districts. Other

public buildings such as the city hall, court house and library should be at a con-
venient location in the central section of the city, [t is with the latter type of public
buildings that this study is concerned.

Most public buildings are designed to reflect the dignity and authority of
government, tt has long been the custom to provide open areas about them and.
where possible, to place them in a commanding position When several public
buildings are needed there may be an advantage in creating a harmonious group
or Civic Centre. The determination of the location for individual public buildings
or for a public building group is an important town planning function.

A Civic Centre comprised of several large public buildings so designed as to
to create a harmonious composition represents one of the highest forms of municipal
accomplishment. It reflects great public spirit and is a stimulation for future civic
interest and achievement. Few cities have built such groups because there has not
been opportunity for construction of several buildings within the course of a few
years. Furthermore, it is not practical to undertake a Civic Centre unless an appro-
priate location can he found which is suitable for the group as a whole, as well as
satisfactory from the standpoint of the several individual buildings.

In addition to the inspirational valueof a Civic Centre there are many practical
advantages in the grouping of public buildings. The first of these is the greater
public convenience thus made possible. There is not merely considerable interchange
between various governmental offices and departments but persons having business
in more than one public office are saved the time and inconvenience of several trips
where public buildings are in scattered locations.

A well established Civic Centre should become a dominant focal point in the
city structure. As such it should facilitate improved design and arrangement of
streets, mass transportation facilities and the use of adjoining land, particularly
the central business district with which it is most intimately related. A large
group of public buildings should complement the business district in such a manner
as to create an orderly design, vastly improved public convenience and greater
permanence and stability of land uses and property values. One of the marked
difficulties of modern cities has been the disastrous shifts in central business districts.

When public buildings are built in separate scattered locations, site costs are
increased because of the greater land areas required. Even though more expensive
land is taken for a Civic Centre, the total cost may be no greater than for scattered
sites. An even higher price could be justified for a Civic Centre site because of the
greater public benefits obtained. In some instances it has been found that consid-
erable economy is possible in servicing and maintenance costs of a public building
group as compared with scattered public building sites.

NEED FOR REAPPRAISAL

The earlier Town Plan published in 1930 contained recommendations for the
development of a Civic Centre site. No public building has been erected upon this
proposed site, and since the 1930 Plan is now being" re-studied and re-adjusted to
changing conditions and to meet probable future needs, it is appropriate to make
a new study of public building requirements. This report contains an analysis of
the factors affecting the location of public buildings, the anticipated need for public
buildings, a description of certain changing conditions within the city, and recom-
mendations regarding the location of the public building group.

VANCOUVE R

BRITISH COLUMBIA

DOWNTOWN
BUSINESS DISTRICT

LAND USES

LEGEND

M COMMERCIAL EZ] GARAGES- PARKING

Wi INDUSTRIAL D GARAGES- NO PARKING

„„_, MOTELS . APARTMENTS CD PARKING LOTS

$ ROOMING HOUSES

SERVICE STATIONS WITH

1*2 FAMILY DWELLINGS PARKING

PUBLIC * SEMI -PUBLIC __ SERVICE STATIONS - NO

BUILDINGS

[— I PARKS

VANCOUVER

TOWN PLANNING

COMMISSION

1945

HARLAND BARTHOLOMEW

t ASSOCIATES

TOWN PLANNERS

Plate i

FACTORS AFFECTING THE LOCATION
OF A CIVIC CENTRE

The 1030 Report listed four major factors that must be considered in the selec-
tion of a Civic Centre. These were: ( 1 I Proximity to central business district:
12) focal position: (3) character oi site and surroundings, and (4) character of
buildings comprising the group. These factors are equally important today. It is
now proposed to re-examine them in the light of present conditions.

(i) PROXIMITY TO CENTRAL BUSINESS DISTRICT

This factor has even greater significance now than when the 1930 study was
made. The majority of the people who have business to conduct in the public build-
ings either work in or visit the central business district during the average day.
Thus a location near this district will be the most convenient for the great majority
of citizens. Civic Centres usually contain a public auditorium. One of the main
uses of a public auditorium is for conventions, which is about the most profitable
form of business a city can invite. Convention attendants stay at hotels and hence
if is imperative that the auditorium be located within easy walking distance of the
hotels, most of which are in the central business district.

Since the business district contains the most valuable property in the city it
should be conserved and protected most carefully. A properly located group of
public buildings can exert a most beneficial influence in stabilization of the central
business district.

(2) FOCAL POSITION

More citizens and visitors will see and enjoy daily the Civic Centre if the site
is in a dominant focal position. When the Civic Centre is designed integrally with
the business district, the Civic Centre assumes the strategic position that is most
desirable. It should not be relegated to an obscure or inaccessible location nor
placed at one extremity of the business district no matter bow good the site, for so
placed, it would not be a genuine "centre". It should be accessible to a great majority
of the major streets that extend to all sections of the city which again means a site
which is integral with the business district since this is the major objective of most
vehicular traffic. It must also be equally accessible to transit facilities — streetcars,
trolley coaches and motor busses. Here again the Town Plan provides for the
concentration of these facilities within the central business district and thus a site
integral therewith, would be the most acceptable.

(3) CHARACTER OF SITE AXD SURROUNDINGS

\\ hen variation in ground elevations permit selection of a site on high ground,
the Civic Centre can be given an unusually dominant location. A sloping ground

is preferable to a completely level site as it permits of a much more interesting
treatment. It may also afford better opportunities for the development of under-
ground parking. In Vancouver a site that could command views over water areas
and the distant mountains should be taken advantage of if possible.

The character of the surrounding property is important in the choice of a
Civic Centre location. It should not be placed in surroundings that are inharmonious
and cannot be improved. However, if the site is sufficiently large, it can to a con-
siderable extent create its own environment. In certain circumstances the public
building group might stimulate the rehabilitation and improvement of adjacent
property.

(4) CHARACTER OF THE BUILDINGS

There are two distinct types of public buildings, i.e., those housing adminis-
trative departments and agencies such as the city hall, court house, federal or
provincial offices, and buildings of the cultural type such as public library, museum
or art gallery. In very large metropolitan cities it may be possible to have both an
administrative and a cultural centre. This is seldom the case, however, and in recent
years particularly, it has been considered wisest to have the cultural buildings close
to transportation and population concentration for wider use and enjoyment of
the collections housed.

MISCELLANEOUS FACTORS

There are, of course, certain additional miscellaneous factors that should
influence the development of a Civic Centre location. The item of cost is present
in any municipal undertaking, and the cost of both acquiring and improving the site
must be considered. Another factor that should not be overlooked is the assembly
of the land and legal problems involved. If there are a number of structures that
would be difficult or impractical to remove for many years, this might adversely
affect the development of the city even though the building development may be
extended over a long period.

Any site must be studied in relation to all the above factors. It is impossible
to find any one location in which all of these factors are complete. However, an
appraisal of each site in its relation to the several items can clearly indicate the most
desirable location. If there is any single factor that should be dominant it is the
matter of proximity to the central business district. The values in this central area
are so high and mean so much to the welfare of the city that the importance of this
factor can scarcely be over-emphasized.

10

PUBLIC BUILDING NEEDS IN VANCOUVER

There are an unusually large number of public buildings to be constructed in
Vancouver within the next few years. The economic depression during- the decade
1 930- 1 040 and the subsequent World War have delayed the erection of public
buildings, and thus there is an accumulative need. With die population growth
that has resulted from the war. and the probable growth that will occur once build-
ing has started in the post-war period, there will be even more serious need for
several new structures. The present is an especially desirable time to determine upon
a location for a public building group.

The following is a brief summary of the public structures that are now or soon
will be needed within the city.

PUBLIC LIBRARY

The present Public Library is entirely inadequate, and a complete new structure
is desirable. There would be no advantage in maintaining the present site unless
possibly as a branch library. To best serve the public need, Vancouver's main public
library should be constructed near the centre of the downtown business district.
Such a building could well become part of a Civic Centre group.

.MUSEUM

Vancouver is the centre of an area that is rich in historical lore and of extra-
ordinary natural resources. The Art, Historical and Scientific Society has long
devoted itself to collecting source material and creating wider understanding of its
significance. Public interest in these matters will increase greatly in the future.
There is a genuine need for an adequate museum to properly house and display the
present collections and future additions. The educational value of such a museum
for children as well as for adults and for tourists will increase immeasurably with
the passage of the years.

ART GALLERY

The Vancouver Art Gallery is now located on Georgia Street between Thurlow
and Bute Streets. This is a small structure on a restricted site which has been
financed to date by private subscription. An excellent collection has been started
which has already outgrown the building. Larger quarters in a more central
location is the immediate need. Many cities equal to Vancouver in importance and
population have built large public art galleries, of the type here proposed.

AUDITORIUM

There is much local interest and need for an auditorium that could accom-
modate conventions, local meetings, musicals, theatrical presentations, and the like.

11

The city is without an adequate structure of this type at the present time. This
building should contain several small and large committee rooms and an auditorium
of 2,500 to 3,500 seating capacity, preferably designed as a music hall of the opera
house type. Several of the more modern public auditoriums also have a large hall
or arena, with level floor for exhibitions, which could also be used for large public
gatherings with seating capacity of 6,000 to 8,000 persons. This should be antici-
pated in any new public auditorium for Vancouver.

SCHOOL BOARD ADMINISTRATION OFFICES AND
CENTRAL VOCATIONAL SCHOOL

The School Board will require facilities for its offices, and consideration is also
being given to the construction of a downtown vocational school. These two uses
might well be combined in a single structure.

FEDERAL OFFICE BUILDINGS

The Dominion Government has under consideration the construction of two
buildings, one for the Department of Veterans' Affairs and the other to accommo-
date the various federal offices now scattered in many of the downtown office
buildings. A temporary building for the administration of Veterans' Affairs is
now under construction in order to provide for this Department's, immediate require-
ments. These buildings could advantage msly be located within the Civic Centre
group as detached or semi-detached structures.

PROVINCIAL OFFICE BUILDING

The Provincial Government recently announced its intention to erect an office
building opposite the Court House on property long held for that purpose. It is
apparent, therefore, that this would preclude its inclusion in any public building
group scheme.

CITIZENS' WAR MEMORIAL BUILDING

There is much local interest in the construction of a War memorial building
to commemorate the services of the many men and women of Vancouver during
the present war. This structure might serve as a major community centre with
ample rooms for meetings, as well as a repository of military records. It should be
an unusually imposing structure of special design and construction.

I '( >ST ( )FFICE

A new Post Office building will undoubtedly be needed at some future date.
This will probably be in the nature of a receiving and sorting station and should
be within reasonable access of railroad facilities. It is not apparent whether or not
this should be within the public building group.

COURT HOUSE

The present Court I louse on Georgia Street has an adequate and desirable
site. The building is attractive in design and of fairly modern construction.

12

Since it will not require enlargement it should not l>e considered in anv new
public building group.

CITY HALL

The present City Hall south of False Creek is a new and modern structure
which should be adequate tor many years. It has an attractive site but i» unfor-
tunately located with respect to the central business district and the main concen-
tration of major streets and mass transportation facilities. It is almost the universal
custom to have the City Hall as the predominant building of a Civic Centre. Since
the present City Hall is a comparatively new building it cannot be.

From the foregoing it is evident that a large number of public buildings are
now needed in Vancouver. It is unusual to find such an immediate need for so
many public structures. Here is an unparalleled opportunity to develop an extra-
ordinary Civic Centre. Few cities have had such favorable circumstances attending
the construction of their public buildings.

1.1

CENTRAL BUSINESS DISTRICT AND
POSSIBLE CIVIC CENTRE

As indicated previously, there must be a close relationship between the Civic
Centre and the downtown central business district. Each requires special design
but the two designs must be carefully coordinated. No modern city attempts to
design a Civic Centre independent of or unrelated to its central business district.
Before discussing possible Civic Centre sites in Vancouver it is necessary to con-
sider the form, the size and the trends of Vancouver's central business district.

LOCATION AND CHARACTER OF BUSINESS DISTRICT

Plate Number 1 graphically shows the existing land uses within Vancouver's
central business district. Its boundaries include the same area as the "General
Business District" in the present Zoning By-law.

Commercial and retail uses should absorb the dominant portion of the central
district. Vancouver's business district, and especially the commercial uses, are
located in the shape of an "L'- — the pivot point or the centre being about at Hastings
and Granville Streets, with development extending eastwards along and parallel-
ing Hastings Street and southward along and paralleling Granville Street. The
most compact and intensive commercial development is around the intersection of
Granville and Hastings, where several blocks are almost completely absorbed by
retail uses. In general, the commercial development is at least two or three blocks
wide in practically all portions of the business district from Main Street on the
east, to Smithe Street on the south. Beyond Smithe Street is found more of a
string development along both sides of Granville Street with only scattered com-
mercial uses along the paralleling streets.

A compact business district in which the commercial uses absorb several blocks
in all directions is far more preferable than an elongated growth. The former type
is much more convenient for the shoppers, it can be better served with transit
facilities and is less subject to congestion. In the compact business district there
is also less tendency for shifting of the business centre and thus there is less diffi-
cult}' in stabilizing property values. The present tendency toward a string develop-
ment along Granville Street presents serious problems, and ever}- effort must be
made to encourage a more compact commercial development. A special report on
Vancouver's Downtown Business District is in course of preparation as part of the
revision of the Town Plan.

While Plate Number i does not show the comparative property values it is
well known that values have declined in the older northern and eastern sections of
the business district. Here are many buildings that should be removed and rebuilt.
Much of this section is well suited for good retail development. There is no sound

14

reason why it should be abandoned. In the long run there is nothing to be gained
and much to be lost by a complete shift to the Granville Street area. However, this
is inevitable so long as no concerted effort is made to bring about a balanced
development in both areas. This is not solely a property owner's problem. It
is a municipal problem of the first magnitude. Not merely is the city concerned
in the maintenance of taxable values but, of still greater significance, the city is
concerned with the annual costs of servicing the business district with innumerable
special facilities ranging from high pressure water service to traffic police. If these
costs are increased because of abnormal expansion and bad design and arrangement
of the business district, there must be an increase in taxes. Thus the municipality
must co-operate with property owners in facilitating stabilization and reconstruc-
tion. New street improvements, good mass transportation facilities and the develop-
ment of off-street parking spaces are among the type of improvements that can
facilitate this objective. The studies show also that a new Civic Centre, properly
located, will do much to bring about a more stable and well balanced business district.

AREA OF CENTRAL BUSINESS DISTRICT

The central business district, as shown on Plate r, is more than adecpiate to
accommodate the probable future commercial and retail development. Of the 300
acres (exclusive of streets and lanes) in the total area, only 117 acres or 39 percent
is now used for retail and commercial purposes. More than 20 percent, or some-
thing over 60 acres, is now occupied by residential development.

On the basis of the present ratio between commercial development and
population, not over 200 acres would be required for commercial uses in the future
business district. Property values would probably be even higher if a more intensive
use was made of a smaller area. However, the estimate of 200 acres is quite liberal,
particularly when it is realized that a substantial portion of the old and more
obsolete commercial structures should be replaced by more modern facilities.

While the central business districts of large cities may experience some further
loss of business due to decentralization of retail business, it is usually believed that
the greatest volume of business decentralization has already occurred and that more
rebuilding of both old residential and commercial areas will tend to give new
strength to central business districts. It is especially important that Vancouver's
downtown business district be arranged in the most orderly manner possible from
and about its present focal point at Hastings and Granville Streets.

POSSIBLE LOCATION OF CIVIC CENTRE SITES

Three possible locations adjacent to the future central business district were
analyzed to determine their comparative advantages for the public building group.
These three included:

1. The site proposed in the earlier Town Plan, which comprised the area bounded
by Burrard, Davie and Bute Streets, and English Bay.

2. The Central School site, which included generally the area bounded by Georgia.
Beatty and Pender Streets and the lane between Richards and Homer Streets.

3. The site bounded generally by Burrard, Alberni, Bute and Pender Streets.

15

The latter site was studied because of its proximity to the business district, its
desirable surroundings, and the possibilities of obtaining views of the inlet and the
mountains. Because of the Canadian Pacific Railway Company's docks, it is an
important gateway to the city. However, no completely satisfactory arrangement
of buildings conld be developed upon this site. This was primarily due to the
requirements for the several individual buildings rather than to difficulties of the
site. Furthermore, this area was not as conveniently related to existing and
proposed mass transportation facilities and thus would be less accessible to the
large number of persons using the centre. Land costs here are also surprisingly
high. Because of these disadvantages a further consideration of this site was
abandoned.

It will be recalled that sites, Numbers l and _> above, were the ones that received
major consideration in the earlier Town Plan. At that time the Central School
site was admitted to he the most conveniently related to the central business district
and contained excellent possibilities. The major objection was the character of the
surrounding development and the fact that it would not have as excellent a setting
nor would the site afford the wonderful panorama of marine and landscape as
would the site adjoining Burrard and Davie Streets.

Conditions have changed greatly since this first study was made. The great
economic depression of the k^o's altered national and local population trends, new-
discoveries in the quantitative aspects of the uses of urban land, decentralization
trends and such, have brought wholly new influences to bear and new considera-
tions in the location of Civic Centres. A reappraisal of these matters in Vancouver
follows :

i. RELATION To THE CENTRAL BUSINESS DISTRICT

When the original Town Plan was developed, cities throughout the country
had been growing for many decades at an unusually rapid rate. A population
of at least one million persons seemed possible for Vancouver within the period
covered by the Plan. Population growth throughout both the Umited States and
Canada experienced a sharp change in the 1930-40 decade. Statisticians agree
that population will grow much less rapidly in future years and may even cease
to grow after 1980. Estimates made as part of the present planning programme
indicate a population of about 500.000 for the City of Vancouver by 1971. although
Greater Vancouver may obtain a population of between 600,000 and 700,000.

The earlier population estimates indicated the central business district would
have expanded to the south and west so that the English Bay site would have been
immediately adjacent to this enlarged business area. However, on the basis of the
revised population estimates, less than two-thirds of the originally proposed business
district will be needed or can be expected to develop lor commercial uses. The
former site on English Bay would not be conveniently related to the future business
district. It would encourage an unwarranted scattering of commercial development
to the southwest rather than the desirable compact extension from the intersection
of Granville and Hastings Streets. The Central School site is ideally related to
the existing and logical future business district and would have many beneficial
influences upon protecting and even improving property values in the downtown area.

16

2. HIGHWAYS

A new highway improvement has also been proposed which was not anticipated
in the original study. This is the proposed Express Highway from New Westmin-
ster. Vancouver is the terminus of many thousands of miles of highways including
the Trans-Canada Highway and the comprehensive 40,000-mile system of Inter-
regional or Interstate Highways that has been initiated within the United States.
Included in the latter, of course, is the United States portion of the Pacific Highway
from South and Central America and Mexico. A large proportion of the tourists
to Vancouver, as well as many citizens of Greater Vancouver, will use this high-
way to reach the central business district. The highway is proposed to enter this
area from the southeast across False Creek and terminate on Georgia Street. Thus,
the Central School site would be immediately adjacent to this important entrance
to the business district, and a fine view of the public building group would be
afforded the large number of persons using the highway.

While the English Bay site would adjoin the important Burrard Street it is not
served directly by the several other important major streets. This site would also
be served by the Cambie Street portion of the proposed Distributor Street, by
Dunsmuir Street (which is to be connected to the Georgia Viaduct) and by Pender
Street as well as by the before-mentioned Expressway to the city. Vehicular
accessibility to the Central School site is now and will continue to be much better
than to the English Bay site.

3. HOTELS

Since the present public building group is to contain an auditorium as well as
other buildings that will be used by both visitors and local citizens, it should be
closely accessible to the hotel facilities. From this standpoint, the Central School
site has many advantages over the original site, particularly since hotels and com-
mercial uses cannot be expected to extend to the southwest as far as the English
Bay site.

4. MASS TRANSPORTATION

Street cars, trolley coaches and busses are vitally important to the location
of the Civic Centre site. Under both the existing and proposed transit routings,
a far larger number of transit routes are conveniently related to the Central School
site than to the Burrard-Davie Street site. The Central School site would be
accessible to the north and south lines located on Richards and Granville Streets
as well as to the heavily travelled lines on Hastings and Cordova Streets. The
English Bay site is served only by the important Davie Street line.

CHARACTER OF SURROUNDINGS

The character of the surrounding property and the views that can be obtained
from the sites are more satisfactory in the English Bay site. It would be difficult
to find a more desirable location from this standpoint. However, if the Central
School site is developed in a spacious manner and contains gardens and open space,

17

its appearance can be most creditable and quite satisfactory. The latter site.
properly developed, should even have a beneficial influence in the redevelopment of
the northern section of the business district and in the rehabilitation of the area
to the south.

COST OF SITE

The H)45 assessed valuation of the Central School site is approximately
$1,782,000 but nearly $775,000 of this amount represents public land and buildings.
The Burrard Street site — land and improvements — is assessed at approximately
$1,079,000 of which $131,400 is the assessed valuation of publicly owned property.
The area of the originally proposed site was 33.') acres, and the area of the. Central
School site is 29.2 acres, including streets within the boundaries.

SUMMARY

In summary, the Central School site affords so many advantages from the
standpoint of accessibility and convenience, proximity to mass transportation as
well as its stabilizing effect upon the central business district, that there can be no
doubt as to the most logical location. The Central School site is recommended as
the proper location for a new public building group.

18

SUGGESTED GROUPING OF PUBLIC BUILDINGS

Plate Number 2 shows a suggested arrangement of public buildings on the

Central School site. A most satisfactory arrangement of buildings and an attractive
design can be created on this site. The scheme indicates how the buildings can all
he well related to each other and to the downtown business district, and that there
would he adequate open space to permit good landscape architectural design. The
provision of lawns, shrubs, trees and gardens should he a most important part of
any proposed public building group in Vancouver.

The Citizens' War .Memorial Building is the focal structure of the entire
development. A portion of this structure should have considerable height — in effect
a memorial tower — so that it would dominate the entire group of buildings.
A distinctive feature of the tower, and one that would add greatly to its significance
as a memorial and interest and charm to both the tourist and citizen, would he the
inclusion of a carillon. The hells could he procured later but the tower should
lie constructed with this thought in mind. This building is so placed in the design
that it will harmonize with and complement the present Cenotaph. Vancouver's
memorial to its heroes of World War I.

The Federal Building or buildings and the School Hoard building would he
large structures providing a suitable frame for the Memorial Building. These
could accommodate a large number of offices and other facilities, and because of their
size, the Federal buildings would screen some of the less attractive views from the
Civic Centre, especially views of industrial and warehouse areas to the east. The
Library and the School Board buildings would be used so frequently that they are
placed closest to the centre of the business district and to mass transportation
facilities.

The Opera 1 louse or Auditorium is located most conveniently in relation to
the major streets and is also within walking distance to all of the leading hotels and
mass transportation facilities. This building is intended to contain a music hall
having a seating capacity for 2,500 or 3,500 persons and appurtenant facilities.
including numerous committee rooms. Convenient service facilities for this structure
can be provided from Homer Street.

The Art Gallery and Museum composition would he one of the most distinctive
features oi the Civic Centre both from the standpoint of architecture and of land
scape treatment. The large area surrounding these structures can be improved with
lawns and gardens, and a tme setting could he provided. The view from the Express
Highway over these gardens at one of the most important entrances to the business
district would add great dignity and beauty to this city.

The site also permits certain flexibility in the location of public buildings. For
example, both the Art Gallery and the Museum could be located upon the block
occupied by the Opera House and the area proposed t" be occupied by these two

10

Ik*. CIVIC CENTRE

VANCOUVER.. BRITISH COLUMBIA

Plate 2

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buildings could he improved with gardens until it was needed by- another public
building such as a sports arena. While this arrangement could not permit of
obtaining the best views of the Centre from the Express Highway and would not
give the desired degree of spaciousness, there is much logic in grouping the three
cultural buildings in a compact area. The possibility of this arrangement is men-
tioned to indicate potential readjustments if adequate area is acquired.

Extensive off-street parking facilities to accommodate a total of 1.000 automo-
biles is suggested as a part of the improvement. Some of these (550) could be
provided in an underground garage located under much of the block bounded by
Dunsmuir, Homer, Pender and Cambie Streets. The topography of this block is
well adapted for development of an underground garage. Additional underground
parking facilities could also be provided under other portions of the Civic Centre
area although they are not indicated on the accompanying plan.

The surface parking lots would not only accommodate persons visiting and
working in the area but being adjacent to the business districts, would also provide
off-street daytime parking facilities for businessmen and shoppers in the central
area. The parking spaces would also be very desirable at night to accommodate
large crowds attending activities at the Auditorium or the War Memorial building.

The area is exceptionally well served by several major streets. It is indeed a
focal point of major streets and hence would serve as an unusually fine entrance
to the central business district. It will be noted that the Cambie Street distributor,
Pender Street, Homer Street and Dunsmuir Street, which will be connected with
the Georgia Street viaduct, all pass through this area. Cambie Street should have
a width of 120 feet, and Dunsmuir Street should be widened to 80 feet through
the Civic Centre area. The only existing street that would be closed by the devel-
opment is Hamilton Street. The small loss of the traffic carrying capacity of this
street would be more than offset by the improvement of the Cambie Street distributor.

The plan shows a grade separation where the Express Highway crosses the
proposed Cambie Street distributor, with provision being made for traffic inter-
changes. Right hand turns could be made in all four directions and provision is
also made for southbound traffic on Cambie Street to turn west in order to proceed
east on to the Express Highwav without crossing any traffic lines. Provision for
this latter movement will involve acquisition of additional property south of Georgia
Street. This separation would permit the movement of large volumes of traffic
without delay or congestion, yet would not detract from the appearance or desir-
ability of the public building group. While the separation structure may not be
needed until there is a pronounced increase in vehicular traffic, since about 2,000
cars per hour in each of the four directions could be accommodated without grade
separation, provision should be made in the plan for the future improvement of
this separation.

The plan also shows a suggested improvement of Peatty Street between Pender
and Robson Streets. This consists of carrying Peatty Street through an underpass
east of the Art Gallery and Museum sites as well as under Georgia Street, and
bringing it to grade at about Robson Street. This would provide an excellent truck
route around the business district, vet would not interfere with the public building
group since the buildings would either rear upon it or it would be placed under-

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ground. The improvement is badly needed to provide a street with a satisfactory
grade for the movement of truck and commercial traffic around the eastern portion
of the business district. This improvement is especially needed to provide another
outlet from the Connaught Bridge.

This site provides an unusual opportunity for the improvement of lawns,
gardens and terraces. The sloping terrain is especially adaptable for this type of
development, and Vancouver's climate is most favourable for the growing of
flowers and shrubs and for the maintenance of gardens. Many people, even Van-
couver citizens, frequently refer to the attractive gardens and plantings in Victoria
which are such a distinctive feature of that city. This proposed public building
development affords an opportunity for Vancouver to have an equally distinctive and
attractive treatment which will not only attract many tourists but will be a source
of pride to local citizens and an important factor in having the city favourably
referred to and remembered. Because of the importance and possibilities of the
landscape treatment, it is especially imperative that the site be kept spacious and
that it not be permitted to become congested with buildings.

The plan also suggests the possibility of providing additional public or semi-
public buildings on the south side of Georgia Street. These sites could accommo-
date future public structures that may not now be needed and would be well related
to the other development proposed in the plan. However, they would not adversely
affect the Civic Centre development in the event that they were never occupied by
public structures.

A bus terminal would be very desirable on one of the locations, especially to
the southeast of the intersection of Georgia and Homer Streets. The site recently
acquired within the proposed Civic Centre development for this terminal would
seriously and adversely affect the public building group.

It would be both logical and desirable to control the height of future build
ings surrounding the Civic Centre. This would prevent the erection of structures
to such a height that they would tend to dwarf and otherwise detract from the public
structures. This control of building heights is especially desirable in the area north
of the Centre, in order to provide views of the water and mountains. .

It is also imperative that all buildings within the group have a harmonious
and similar architectural treatment. Even though financed by several different
agencies, they should complement rather than conflict with each other. It would
probably be desirable to create a local board or commission that would pass upon
all building and landscape plans within this area.

The proposed site presents such unusually fine opportunities not only because
of the possibilities of an attractive development but also because of its excellent
relationship and beneficial influence upon the central business district, that early
steps should be taken to adopt a comprehensive plan for financing, acquiring and
developing the project. It is especially important that early plans be prepared for
the individual structures and that a carefully studied grading and landscape plan
be prepared for the entire tract.

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