Edmonton (Alta.) - 1977 - Downtown pedway concept plan (1977-11)

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T080/939011977 PED WAY CONCEPT PLAN, EDMONTON, EDMONTON -PLANNING

pedway concept plan

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OF EDMONTON PLANNING DEPARTMENT

EA PLANNING SECTION

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NOVEMBER 1977

downtown pedway concept plan

Area Planning Section Planning Department City of Edmonton November, 1977

DOWNTOWN PEDWAY CONCEPT PLAN STATEMENT OF CITY COUNCIL ACTION

ON JULY 13, 1977, THE PEDWAY CONCEPT PLAN WAS SUBMITTED TO CITY COUNCIL AT WHICH TIME THE FOLLOWING MOTION WAS CONCURRED IN.

"That the policy guidelines contained in the Pedway Concept Plan be adopted for future planning, design, security, maintenance, financing, operation, and implementation of a pedway network for downtown Edmonton."

PEDWAY CONCEPT PLAN SUMMARY REPORT I. PURPOSE OF REPORT This report contains recommendations for the future development and management of a pedway network for downtown Edmonton. The purpose of a pedway network itself is to provide the pedestrian with a safe, convenient, attractive and secure environment. More specifically, the network is intended to: - reduce conflicts between pedestrian and vehicular traffic - conveniently link major functional areas and points of interest - create a safe pedestrian environment in the downtown area - shelter pedestrians from the elements - strengthen the downtown's role as a unique experience by creating a stimulating pedestrian environment - provide interesting and enjoyable areas for use by the large day-time downtown employee population.

- attract special types of land uses (ie. specialty shops) through development of a "people - orientated environment" - provide "visual corridors" for pedestrians.

II. RECOMMENDATIONS A.

B.

Concept Plan 1.

That the Concept Plan illustrated on Map 1 (Downtown Pedway Network) and Map 2 (Vertical Alignments) be adopted as a basis for future pedway planning and construction.

2.

That the future detailed planning of grade-separated pedway alignments employ a principle of predominantly utilizing private land at a ratio to be determined through further study. In the interim, use of a 80% private/20% public ratio is recommended.

Design Standards 3.

That the basic design considerations in Chapter 3 and "Design Standards" in Appendix I be adopted as guidelines for future development of pedway connections.

4.

That the Planning Department assume the responsibility ,of preparing a detailed design brief for individual connections taking into consideration both projected pedestrian volumes and level of service to be provided.

C.

Security 5.

That the private abutting properties be responsible for providing security in the connecting portion of the pedway on public land in a manner at least as consistent as that provided in their own building.

6.

That under the Development Agreement, the City may require the abutting properties to provide additional security including: (a) closed circuit TV surveillance (b) patrol surveillance (c) audio surveillance

7.

D.

That security provision and the cost of such shall be shared in a like manner to that of maintenance.

Maintenance 8.

That the abutting private buildings will provide the maintenance requirements for the connecting of public land pedways including daily and other maintenance activities such as: (a) (b) (c) (d) (e)

9.

10.

E.

cleaning heating lighting air-conditioning decorating

That Central Supply & Service Department under the development agreement process reserve the right, if it feels that the job is not being satisfactorily carried out, to take over the maintenance and charge back on the square footage basis the total cost to the abutting development or, re-assign the task to the second abutting development and require the first to provide 50% of the cost.

That the provision of maintenance for the advertising display equipment, excluding electricity, shall be the responsibility of the City or its appointee.

Financing 11.

That a guideline be adopted to the effect that the City will not be responsibile for more than 20% of the capital cost of grade-separated pedway construction on public land and none of the capital costs on private land.

12.

That the Planning Department give consideration to a bonus system whereby pedways and other related amenities be provided by private developments in return for development bonuses.

II

13. That the City's share of the cost of pedway construction on public land be recovered over a ten year period through renting the public land use adjacent to the pedway to the abutting developments.

14. That the development which front-ends the costs of construction of a pedway connection shall recover 50% of the cost when the connecting development comes on stream.

15. That the first developer shall provide maintenance and security and shall receive 50% of the operating costs when the connecting development comes on stream.

F.

Operations 16. That the responsibility of the approving authority shall be assumed by the Planning and Engineering Departments. Applications for a pedway development will be reviewed by these departments and approval procedures will be the same as for other developments. Negotiations for specific connections will be the responsibility of the Realty Development Office and implemented through the development agreement process.

17. That the hours of operation of the pedway network be the same as those of rapid transit or as directed by Commission Board.

G.

Implementation 18. That the Planning Department, and the Engineering Department have primary responsibility in preparing a pedway bylaw or similar implementation document.

19. That the Planning Department assume primary responsibility for the following: (a) Preparation of a staging plan based upon likely redevelopments in the next 5 to 10 years. (b) Consulting and reviewing of designs originating outside the Planning Department. (c) Issuance of necessary permits upon receipt of development applications. (d) The detailed briefs containing guidelines and functional planning requirements related to individual developments, including public developments such as rapid transit stations.

20. That the Engineering Department be responsible for: (a) In the case of private development, the review of design and working drawings for pedway construction.

III

(b) In the case of public development, the design, preparation of working drawings and the construction of pedways.

21. That Parks and Recreation Department assume responsibility for the preparation of working drawings and construction of landscaping of public open spaces related to the pedway.

22. That the Engineering Department with Parks and Recreation Department budget capital expenditures for their respective construction irrespective of the method of execution either by City crews or outside contractors.

23. That the Engineering and Parks and Recreation Departments assume the responsibility for the preparation of documents for tendering, and if required, execute their respective tendering procedures and supervise the construction process.

Prepared by: Rehabilitation and Redevelopment Branch Planning Department March, 1977

IV

"Walking is one of man's most magnificent abilities, a vital factor in his long journey up the evolutionary ladder and his progress towards civilization."

John J. Fruin, PhD: Pedestrian - Planning & Design.

TABLE OF CONTENTS

Page

List of Maps

iii

List of Figures

iii

Chapter I

INTRODUCTION

A.

Purpose of the Downtown Pedestrian Report

1

B.

Objectives of the Network

2

C.

Existing Policy

2

Chapter II A.

THE PROPOSED CONCEPT PLAN

Downtown Pedway Network

Chapter III

4

BASIC DESIGN CONSIDERATIONS

A.

Introduction

12

B.

Pedway Categories

12

C.

General Requirements

13

D.

Nodes

18

E.

Change of Level

19

F.

Network Access Points

22

G.

Facilities on Pedways

22

H.

Micro Climate

23

I.

Interior & Exterior Finishes

23

1

Page

Chapter IV

COSTS AND FINANCING

A.

Financing Policy for Pedways

24

B.

Pedway Cost Sharing

25

C.

Legal Implications

26

Chapter V

IMPLEMENTATION

A.

Maintenance

28

B.

Security

29

C.

Responsibilities

29

APPENDIX

31

BIBLIOGRAPHY

38

11

LIST OF MAPS

Page

Map 1.

Downtown Pedway Network

5

Map 2.

Vertical Alignment of Pedways

10

LIST OF FIGURES

Figure 1. Pedestrian Occupancy Factor

14

Figure 2. Provision for Dead Space

15

Figure 3. Dead Space Abutting Commercial Space

16

Figure 4. Open Air Mall

17

Figure 5. Nodal Points in Pedways

18

Figure 6. Ramps Within Pedway Network

19

Figure 7. Stairways Within Pedway Network

20

Figure 8. Clearance Required for Overpasses

21

:ntL Ddu The concentration of facilities and services within the City Centre provides the opportunity for face to face contact in the exchange of goods, services and information. For this role to continue, the downtown must provide a safe, comfortable and convenient environment.

Improved provision for pedestrian activity will facilitate such exchanges and reduce the hostility of the existing pedestrian environment.

This report proposes an improved pedway network which will foster the continued vitality of the downtown area.

A.

PURPOSE OF THE DOWNTOWN PEDWAY REPORT

The purpose of this report is to serve as a planning framework for the future planning and development of a pedway network for downtown Edmonton. The Downtown Pedway - Rapid Transit Team formulated guidelines encompassing the joint interests of the pedway and rapid transit facilities. Guidelines covered the following areas of concern:

41 40 41

Retail Space

41 40 40

Cost Recovery

Security Maintenance

Operations Management Design Standards

It is intended that the final Downtown Pedway Concept Plan be included in the General Plan as a part of the Downtown and/or Transportation Chapters. This would enable implementation through use of the Zoning Bylaw or Land Use Classification Guide and Pedway Bylaw once complete, by requiring properties along the alignment to provide pedway facilities.

OBJECTIVES OF THE NETWORK The overall objective of the pedway network is to provide the pedestrian with a safe, convenient, attractive and secure environment. More specifically, the network is intended to: reduce conflicts between pedestrian and vehicular traffic

• • • •

conveniently Zink major functional areas and points of interest create a safe pedestrian environment in the downtown area shelter pedestrians from the elements strengthen the downtown's role as a unique experience by creating a stimulating environment

0

provision of interesting and enjoyable areas for use by the large day-time downtown employee population

attraction of special types of land uses (i.e, specialty shops) through development o

41

.

"people - oriented environment"

provision of "visual corridors" for pedestrians

EXISTING POLICY On April 8, 1968 City Council approved the following recommendation: "Council accept the principle of a Downtown Pedestrian Circulation System as a guide to the future planning of pedestrian circulation in this area".

2.

The above policy was embodied and expanded in Chapter X of the City of Edmonton General Plan. Recommended features of the pedways as outlined in the Plan are:

41

weather protected pedestrian walkways to integrate the core of the retail area

40

pedestrian malls and wider downtown sidewalks

40

pedestrian ways and arcades in the middle of major blocks

40

multi-use pedestrian plazas

The idea of a pedway network is further reinforced in the City of Edmonton Transportation Plan - Part 1.

POLICY

To provide safe, direct, pleasant access throughout the City Downtown Area. sidewalks of adequate dimensions

41 40

an enclosed walkway system

40

weather shelters

40

the development of pedestrian areas

40

encourage pedestrian facilities in new developments

40

provide street furniture for walkers.

3.

2 proposed concept plan A.

DOWNTOWN PEDWAY NETWORK

Map No. 1 "Downtown Pedway Network", illustrates possible pedway routes and a number of optional extensions to these routes. This network is essentially a representation of anticipated desire lines, existing rights-of-way and committed or anticipated extensions to these routes. (The names which have been applied are for discussion purposes only. These and other names should be submitted to the Names Advisory Committee for approval once the routes are firmly established).

To date there has been little staging of pedway construction and links in the network have been provided as new developments are built. This may be satisfactory where rapid development is occuring, but in stable areas, where redevelopment is not likely to occur, the initiative to provide key sections of the network should be undertaken by the City. A staging program is essential if the pedway network is to become a reality within a reasonable time period. Route priorities should be set forth and an implementation program formulated for each route.

1.

SPINAL PEDWAYS The following is a brief description of the spinal pedways illustrated on Map No. 1.

Queens' Walkway

The Queens' Walkway is a north-south connector parallel to 99 St. linking the northeast area of the downtown centre to the river valley. It also provides pedestrian access to the Rapid Transit Station located in Churchill Square. The proposed route is to provide easy access to cultural and recreational facilities such as the Art Gallery, Citadel Theatre, and Library.

It should be noted that the Queens' Walkway and Capital Boulevard are assigned special roles in linking the Civic and Alberta Government Centres as well as providing access points to the river valley.

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CITY PLANNING DEPARTMENT area planning & special projects 1977 1" = 800' approx.

DOWNTOWN PEDWAY NETWORK

Capital Boulevard Capital Boulevard is the most westerly pedway spine located along 108 Street south of Jasper Avenue and swinging east to 107 Street north of Jasper Avenue. The southern leg extends from Jasper Avenue south to the Legislative Buildings and down to the River Valley. The northern leg extends from Jasper Avenue north out to the downtown area across the C.N. right-of-way to NAIT and the Kingsway Garden Mall Shopping Complex. The south end of the pedway also connects the Heritage Trail extending east of the Boyle Street area and the Queens' Walkway.

It is planned that the entrance to Capital Boulevard from Jasper Avenue at 108 Street and the Queens' Walkway at 99 Street and Jasper Avenue should be accented by: 41

Creation of open space (wide setback of buildings),

40

special lands pacing features,

41

controlling the height and form of surrounding buildings.

Second Street Mall The Second Street Mall is the centre of the pedway network and is a main north/south spine. It provides access south to the Heritage Trail, the River Valley and north over the C.N. right-of-way, to Victoria Composite High School. Proposed high density commercial development on the old Eaton Warehouse site will have easy access south to the commercial areas and transportation facilities along Jasper Avenue. A small development is recommended for the area from Jasper Avenue north to 102 Avenue.

Howard Pedway The Howard Pedway connects the Edmonton Centre shopping core and the surrounding office towers to Jasper Avenue and the Rapid Transit Central Station. In the future it is planned that this two block connection will be converted into the Rice Howard Semi-Mall. Proposed developments under construction have co-operated with the City and have included design solutions to complement future Mall development.

Isabella Isabella provides the northern east - west link parallel to 104 Avenue.

This pedway connects with the Queens' Walkway of 99 Street and extends west on 104 Avenue to intersect with Capital Boulevard at 107 Street. Future development in the warehouse district and anticipated redevelopment along the C.N. right-of-way will require provisions for greater movement of pedestrians in this area. The Isabella Walkway will provide a safe pedestrian thoroughfare that does not exist at the present. Other major connections include the 107 Street connections north and the 102 Street connections north to the Victoria Composite High School.

6.

May Way The May Way spine is the major east-west pedway starting east from 93 Street between the one way couplet of 103 Avenue and 102 Avenue west to the proposed development of the C.P. yards.

Although the May Way is considered part of the major pedway network, it is not expected to fully develop for approximately 20 years. Its major function will be to provide pedestrian access to the downtown from the adjacent high density residential districts.

All Saints Skywalk and Jasper Avenue Semi-Mall The All Saints Skywalk lies between 100 Avenue and Jasper Avenue from 108 Street to 103 Street and swings north to become the Jasper Avenue SemiMall at 102 Street. The Jasper Avenue Semi-Mall continues east to 99 Street joining the Queens' Walkway. This main spine provides an eastwest connection between the Government Centre, McKay Avenue high density residential area to the downtown commercial and business district. The All Saints Skywalk will provide a controlled environment for the pedestrians using this route and will minimize the vehicle pedestrian conflict.

Completion of this spine will require cost sharing agreements by the private developer with the City of Edmonton. A proposed Semi-Mall would consist of widening sidewalks, installing specialized street lighting, adding brick pavers to accent pedestrian areas combined with planter boxes and other street furniture.

Heritage Trail The Heritage Trail Pedway east of 99 Street and south of Jasper Avenue runs west along the top-of-the bank of the river valley to the Legislative Grounds. This pedway is intended to serve as a link between the central downtwon core and the McKay Avenue residential area and the Government Centre to the west. It will also serve as access to view points of the River Valley. A major feature on the Heritage Trail is the McKay Avenue School which is significant both as a historic site and as one of the few public open spaces in the immediate vicinity.

The proposed Heritage Trail is intended to serve a number of roles in the downtown structure, both at functional and symbolic levels. This trail will serve to:

7.

40

Link the downtown residential area with places of employment including the Alberta Government Centre and the Civic Government Centre.

40

Open the top-of-the-river-bank for public use and enjoyment of the unique River Valley views, as well as providing access points to the River Valley and the downtown area.

40

Create a symbolic link between the Alberta Government Centre and the Civic Centre.

40

Connect the central core with adjacent residential areas as well as with pedestrian routes leading to the south side of the river.

40

Provide pedestrian access to the proposed Convention Centre, and the historic buildings in the area between 98 Street and 95 Street, on Jasper Avenue. Notably the Alberta Hotel, the Gibson Block and the Brighton Block.

Although a large portion of the land necessary for completion of the trail is readily available, full development will require some additional land acquisition. As in the case of other pedways the actual land requirements can only be determined by detailed route studies.

2.

SECONDARY PEDWAYS Secondary Pedways serve to supplement the spinal pedway network. In the future, secondary pedway connections will be developed in order to extend the pedway system. i.

There are three main links illustrated on Map No. 1. The most significant is the Rice Street link. In the future this pedway will become part of the Rice Howard Mall in the downtown area. Rice Street is an east west Avenue between Jasper Avenue and 102 Avenue linking 102 Street to the Queen's Walkway and extending east to 96 Street.

The importance of this connection is the cross link in the Civic Centre Area.

The extension of the Heritage Trail east from Queen's Walkway is to be a secondary pedway similar to the spinal portion of Heritage Trail west. This pedway is a link into the past with older structures such as the Alberta Hotel, the Gibson Block and the Brighton Block. The extended trail links with the river valley and Jasper Avenue.

8.

The third secondary pedway is a north south connection from Isabella, 104 Street south into the river valley park system.

This pedway is located on 104 Street.

3.

ACCESS PEDWAYS Access Pedways link minor activity areas, and serve also as connections between higher order pedways. These links are generally short, not longer than 60 feet and accommodate generators of low volume pedestrian traffic. Routes serving these functions can be less than 20 feet in width.

4.

HORIZONTAL AND VERTICAL ALIGNMENT A primary objective of downtown planning is to minimize vehicular, pedestrian conflicts. While at grade pedways are the most natural and least expensive pedestrian routes, a pedway network designed exclusively on the same grade as vehicular would result in impediments to the flow and safety of both vehicles and pedestrians. This conflict necessitates some vertical separation while other factors dictate shifts in both the horizontal and vertical alignments.

These factors include: •

land use pattern

•

shape and orientation of blocks in the downtown area

•

frequency of flow interruptions

40 frequency of level changes

•

technical requirements of level changes

•

physical requirements of sub-grade and above grade alignments

•

psychological preferences of the pedestrian

•

economics.

Space limitations and constraints of existing urban network are also factors in determining whether alignments should be at grade, elevated or below grade.

Map No. 2, "Vertical Alignments of Pedways", illustrates suggested pedway levels. Where feasible, the route alignments are shown as being at grade. In other instances, due to the nature and form of existing and anticipated developments and the large number of roadways to be crossed, the pedways are shown as being above grade.

Where the form of redevelopment is difficult to predict, such as in the area east of 97th Street, the level is not specified.

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CITY PLANNING DEPARTMENT area planning & special projects 1977 1" r• 800'approx.

MAP 2 VERTICAL ALIGNMENT OF PEDWAYS

New subgrade pedways are suggested only in relation to existing pedways and where they would complement the rapid transit line.

Utilization of the mezzanine level of the Churchill, Central and additional underground stations will require sub-surface pedway connections. In addition to the foregoing, it may be necessary to provide a number of short underground linkages and street crossings where they prove to be more desirable than above grade connections.

In all other cases, surface or above grade connections are recommended.

11.

3 basic design considerations A.

INTRODUCTION The design of the pedestrian environment must reflect human requirements and capabilities, particularly the physical dimensions of the body, psychological preferences and the amount of energy required by a pedestrian to overcome changes in level. These considerations supplemented with information on pedestrian flow, will determine the required width of a particular pedway connection.

The design considerations outlined in this Chapter are presented as a basis for further detailed analysis and the findings are summarized as standards in the Appendix. These standards are of two types, fixed, such as those dictated by building code requirements, and variable, according to the quality of pedestrian accommodation desired. The standards are considered as minimums for an acceptable pedestrian environment.

B.

PEDWAY CATEGORIES. The pedways have been divided into three general categories. These categories have been established to simplify mapping and definition of route hierarchy. In practice, pedway dimensions will be established through analysis of constraints and existing and anticipated traffic generation along each route. The pedway categories are differentiated by width and the number of changes in direction and level of service to be accommodated.

1.

Spinal Pedways (main routes).

Spinal pedways are intended to serve as links between major activity concentrations such as rapid transit stations, office complexes, shopping facilities, parking structures and other similar pedestrian generators. In order that these walkways be readily identifiable and convenient for users they must be direct, with a minimum of changes in level. Where level changes are necessary they should be supplemented by escalators.

These routes must be at least 25 feet wide.

12.

2.

Secondary Pedways Secondary pedways serve primarily as convenience walkways linking lower order activity concentrations to spinal pedways.

More significant changes in direction and level are tolerable than qn main pedway routes. The recommended minimum width of these paths is 20 feet.

3.

Access Pedways Access Pedways Zink minor activity areas, such as single buildings, and serve as connections between higher order pedways. These links are generally short, not longer than 60 feet and accommodate generators of low volume pedestrian traffic. Routes serving these functions can be less than 20 feet wide.

C.

GENERAL REQUIREMENTS Pedway networks have a number of component parts including: 41

paths themselves

40

intersection points

41

overpass and underpass cross points

40

activity concentration nodes.

Each of these elements require specific design and construction standards to provide for accommodation of expected pedestrian flow and activities at each location.

1.

Minimum Corridor Widths

Pedestrian Occupancy Factor.

While walking, each pedestrian generally occupies 15 - 25 sq. ft. of space. A five foot by five foot envelope (15 - 25 sq. ft.) as shown in Figure #1 enables the pedestrian to move freely in any direction, although for short periods reduced personal space is tolerable, such as in crowd exiting a theatre or standing in an elevator. In such cases, pedestrian occupancy can be as little as five square feet per person.

13.

5'

PEDESTRIAN OCCUPANCY FACTOR

FIG. 1

14.

Corridor Width Calculation Corridor widths are calculated for each section of the pedway network using predetermined factors for pedestrian occupancy in conjunction with pedestrian generation data. In calculating the corridor width it should be recognized that both the flow and the pedestrian occupancy factor can vary by location and time of day. It should be noted that the width calculation should also consider the impact of multi-directional flows on pedway capacities.

Dead Space The corridor width must take into account the provision of "dead space" on each side of the corridor (generally 1.5 feet).

As indicated in Figure #2 a 1? foot corridor would have a 14 foot "working width".

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PROVISIONS FOR DEAD SPACE

FIG. 2

15.

Dead Space Abutting Commercial Space An additional 1.5 foot increase in width along the commercial frontage is needed to allow for persons stopping, window shopping and changing direction as depicted in Figure #3. In outdoor situations, sidewalk space should be provided for standees waiting for buses and also at intersections to allow space for persons waiting for traffic lights.

ICOMMERCIAL SPACE •

COMMERCIAL I SPACE 1.5'

14'

DEAD SPACE ABUTTING COMMERCIAL SPACE

I Le 1.5' FIG. 3

In summary, where pedestrian volumes and flows can be established, the factors contained in the Appendix should be utilized to determine pedway width. In calculating the working width, any obstruction in the pedestrian path, such as street furniture, must be considered. As previously stated, the desired level of service, should be established prior to calculating the pedway width or there will be little consistency in applying the various factors.

16.

Minimum width calculations for sidewalks require consideration of one additional factor, short term fluctuations in the travel stream. The flows of pedestrians on sidewalks are not uniform, primarily due to "bunching" or "platooning" as a result of traffic signals releasing people into groups.

Similarly, subways, elevators and buses release people in groups within short intervals which also contributes to platooning.

In such circumstances, average flow information is not adequate for use in calculating sidewalk width and the standard used should relate to the period during which flow in platoons occurs. If insufficient sidewalk space is provided, slower walkers intensify platooning and impede other pedestrians.

OLDRIGHT OF WAY

Open Air Malls created from existing roadway rights-of-way must have a minimum width of 40 feet to allow for landscaping, street furniture, window shopping and variations in walking speeds.

OPEN AIR MALL

FIG. 4

17.

Height of the Pedway

2.

The height of the pedway should not be less than 9 feet between "permitted fixtures" and the walking surface. These fixtures include lighting, directional signs and the like. A height of less than 9 feet would be acceptable only in cases where the pedway must pass through existing buildings. Other exceptional circumstances should be dealt with by the approving authority.

D.

NODES Nodes are those points where the pedways intersect pedestrian routes, vertical access points and activity concentration areas such as shopping malls and plazas. The width of the pedway should be increased at the nodal points to allow for changes in direct placement of street furniture and variations in walking speed as illustrated below in Figure #5. Flaring would increase the pedway width at the intersection point by 50%.

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18.

E.

CHANGE OF LEVEL Drastic changes of level within the pedway network should be avoided. No single change in level greater than 15.5' (4.7m) (except truck route overpasses where the required height is 17.5' (5.3m), should be permitted unless it incorporates an escalator or similar device. Where possible, gradual changes in level should be accommodated within the structure which supports the pedway.

1.

Ramps If the gradient of the walkway exceeds 5% it falls into the ramp category and should not be greater than 30 feet in length, unless landings are provided as shown in Figure #6.

The recommended maximum gradient is 8% or a ratio of 1:12.5 and all ramps should be surfaced with non-slip materials. One ramp is required for each level of the pedway for cleaning and maintenance equipment and to accommodate handicapped persons and baby carriages.

MAXIMUM 8

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RAMPS WITHIN PEDWAY NETWORK

MINIMUM

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FIG. 6

19.

2.

Stairs

MAXIMUM16 RISERS

Dimensions of stairways are dictated by building codes, and the standards recommended in the Appendix exceed these requirements. To create a safe and functional stairway, the product of the rise and run should be between 72" and 75" with a rise of 6" or less and a tread, or run, of 12" or more. The risers and treads must be kept uniform within the stairway and flights generally should not contain less than 3, or more than 16, risers. Stairway widths should be sized for their particular application but as a minimum, 30" in width will allow two people to pass.

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STAIRWAYS WITHIN PEDWAY NETWORK

FIG. 7

20.

3.

Grade Separated Crossings Elevated crossings have numerous safety, economic and environmental advantages when compared to underpasses. However, underpasses are more readily accepted by the public for physical and psychological reasons since there are fewer steps and the initial movement is in a downward direction. In determining what type of grade separation is most appropriate there is a trade-off between the lower capital cost of over- , passes and the benefit of minimum grade differential with underpasses.

Use of either type depends on the particular circumstances of each development. As previously stated overpasses should be a minimum of 15.5 feet above the crown of the road, except where they span truck routes where the required minimum height is 17.5 feet as shown in Figure #8.

CLEARANCE REQUIRED FOR OVERPASSES

FIG. 8

21.

F.

NETWORK ACCESS POINTS Access points to the network are as follows:

40 elements connecting pedways, 40 entrances to grade separated crossings, 40 emergency exit and access points, 40 activity area entrances, 40 service access points.

Wherever possible, pedways, regardless of level, should have access from the sidewalks they intersect. However, there must be connections where two pedways cross at separate levels. The travel distance of level change either between pedways or pedways and sidewalks, should not exceed a total of 100 feet in situations where it is impossible to locate stairs or escalators immediately adjacent to both facilities. If the distance exceeds 100 feet, the route becomes too circuitous and its efficiency will be reduced.

G.

FACILITIES ON PEDWAYS Pedestrian oriented elements recommended for location on or near the pedway system include open space such as pocket parks, malls and semi-malls. Public conveniences such as washrooms and drinking fountains should be spaced at intervals equivalent to a five or six minute walk or approximately 500 yards (450 m). Public telephones, bicycle racks, mail boxes, first aid facilities, and fire prevention equipment should also be provided at appropriate intervals. Custodial facilities must be incorporated into the pedways and retail centres could provide supervised play areas, luggage lockers and other conveniences for shoppers. These should be paid for through costsharing agreements at time of development All of these facilities require detailed standards for their placement which are to be determined by subsequent studies. Similarly, a standardized information guide, applied throughout the system, including directional signs, maps, route directions and general information signs should be established and regulations formulated which will specify allowable identification for individual commercial frontages.

22.

H.

MICRO-CLIMATE The open pedways should be designed in such a manner as to minimize the effects of the following on pedestrians:

41 wind tunneling 41 wind carried precipitation and dust 40 over-shadowing by adjacent structures 40 traffic noise.

Regulations for the above should be formulated as performance standards and be detailed in supplementary documents.

Any enclosed pedways should be temperature controlled and ventilation ducts, stacks etc. must be accommodated within adjacent developments.

Details as to desirable temperatures should be determined through further study. All pedways and malls should be designed to allow maximum possible penetration of sunlight. Specific illumination levels are recommended in the Appendix.

I.

INTERIOR AND EXTERIOR FINISHES The materials used for interior and exterior finishes of pedways should present a uniform design identity reflecting the function and character of the routes while aiding the pedestrian to orient himself and to confirm his right to use such areas.

This does not mean that the same material in the same color should be repeated throughout the system, but rather that each part of the system should be identifiable as a portion of a larger network.

All materials to be used will be subject to review by the approving authority and should be durable, safe and easy to maintain, but should not be such that they create the appearance of institutional monotony. This can be avoided by varying materials or using them in patterns. However, this should not be done to the extent of creating visual overloading. Parts of the pedway should be unique, for variety, but not to the point of being ambiguous to the users and unrecognizable as part of the public pedestrian system.

Maximum wall transparency and "openness" should be provided to achieve an improved environment and a feeling of security. This will allow natural light penetration and provide the opportunity for casual surveillance (self-policing). In particular, stairways, elevators and entrances should be visible from the exterior.

Through the use of window walls at access points, security can be facilitated since this would eliminate blind entrances.

23.

4 costs and financing On April 1, 1968, City Council approved a Downtown Pedestrian Circulation Report as a guide for the development of a pedestrian system in the downtown area. Subsequently a number of underground pedways and overhead connections have been planned and constructed, each financed on an individual basis.

To date there have been various cost sharing agreements with individual property owners abutting the pedway system. The City has made substantial investments to encourage construction of the pedway system with a view to ultimately phasing out its direct financial participation as the construction of the network proceeds and as acceptance of pedways increases.

With several major developments now under construction or in final planning stages there has been a rise in interest among downtown businessmen regarding further extension of the pedway system. The establishment of uniform policy guidelines from which costing and financing of extensions can be determined is necessary.

The recommendations which follow are intended to guide future studies and should not be considered as final.

A.

FINANCING POLICY FOR PEDWAYS The costs of pedway construction should be borne proportionately by those parties which will benefit from the presence of the pedway.

Multi-level walkways in effect create two ground floors and make it possible to rent what would otherwise be less desirable basement or second floor space, at retail store rents. Such increases in value, which can be attributed to the pedway, should be reflected in cost sharing arrangements. Similarly, any negative effects also require consideration.

Financing for pedway construction should be secured through development agreements.

An objective of the Pedway Bylaw should be to make construction of pedway links mandatory. No new development should be permitted which will jeopardize the completion or continuity of the pedway system.

24.

Future civic spending for pedways should be considered under the following guidelines:

B.

40

Provision of special benefits to the City, i.e. essential linkages to rapid transit stations, major bus stops etc.

40

Completion or extension of existing portions of the system.

The City should strive for reduction in its share of funding for pedway construction and where City monies are to be utilized the pedway hierarchy and benefits of the proposals' timing should be considered.

PEDWAY COST SHARING If it is determined that a bonus system should be applied the following can be utilized as a basis for further detailed study.

1.

Pedway Related Studies

40

Underground Pedway

25 sq. ft. of bonus space for each Z sq. ft. of pedway space provided by the development.

40

Elevated Pedway

17 sq. ft. of bonus space for each Z sq. ft. of pedway.

40

At grade pedway, (includes land acquisition and and provision of amenities by the development.

10.0 sq. ft. of bonus space for each 1 sq. ft. of pedway.

Note: tree planting, bus shelters, provision for benches.

2.

Open Space Related Amenities Improvement of the outdoor pedestrian environment will be dealt with in the Downtown Plan. It will determine the type of cost sharing agreements which are most appropriate for such elements as plazas, arcades, building setbacks and landscaping which are indirectly related to the pedestrian environment.

25.

Future civic spending for pedways should be considered under the following guidelines: 40

Provision of special benefits to the City, i.e. essential linkages to rapid transit stations, major bus stops etc.

40 Completion or extension of existing portions of the system.

The City should strive for reduction in its share of funding for pedway construction and where City monies are to be utilized the pedway hierarchy and benefits of the proposals' timing should be considered.

B.

PEDWAY COST SHARING If it is determined that a bonus system should be applied the following can be utilized as a basis for further detailed study.

1.

Pedway Related Studies

40 Underground Pedway

25 sq. ft. of bonus space for each l sq. ft. of pedway space provided by the development.

41 Elevated Pedway

17 sq. ft. of bonus space for each 1 sq. ft. of pedway.

40 At grade pedway, (includes land

10.0 sq. ft. of bonus space for each 1 sq. ft. of pedway.

Note: tree planting, bus shelters, provision for benches.

acquisition and and provision of amenities by the development.

2.

Open Space Related Amenities Improvement of the outdoor pedestrian environment will be dealt with in the Downtown Plan. It will determine the type of cost sharing agreements which are most appropriate for such elements as plazas, arcades, building setbacks and landscaping which are indirectly related to the pedestrian environment.

25.

C.

LEGAL IMPLICATIONS 1.

The routes illustrated on Map 1 as spinal, secondary and access pedways are considered essential portions of the network. The "Possible Extensions of Pedways" depicts auxiliary routes which are considered optional to the network function.

The Downtown Plan will finalize these routes but in the interim new developments should provide for the "essential" routes as depicted.

2.

All pedways within the essential portion of the network are considered "public" with public right of entry and use.

Jurisdiction in these public areas is assumed by the City.

40

The pedways within the optional part of the network may be designated "public". In such cases, a suitable clause should be included in the development agreement.

40 In cases where the pedway is routed through private property, the City should continue to obtain easements for designated public pedways within the extent of the "essential" network.

3.

The developer of the properties within the "essential" network are required to provide easements where necessary.

4.

Cost sharing of pedway construction and development bonuses allowed for provision of pedways and open spaces must be negotiated with the City and be included in a development agreement. The City is to be represented in such negotiations by the Realty Development Office, Law Department, Real Estate and Housing Department and City Planning Department. The Real Estate and Housing Department should be represented in negotiations involving lease of a air space or sub-surface space.

5.

The development agreement should contain:

40 requirements for conformity with the "design standards" 40 special design requirements 40 hours of operation clause 40 maintenance and, if required, service conditions.

26.

5 implementation The recommendations presented in this chapter are to be incorporated in the Pedway Bylaw. The Planning and Engineering Departments will have primary responsibility in preparing this bylaw or similar implementation Jocument.

A.

MAINTENANCE 1.

That the abutting private buildings will provide the maintenance requirements for the connecting of public land pedways including daily and other maintenance activities such as: cleaning heating lighting air-conditioning decorating

B.

2.

That Real Estate and Housing, under the development agreement process, reserve the right, if it feels that the job is not being satisfactorily carried out to take over the maintenance and charge back on the square footage basis the total cost to the abutting development or, re-assign the task to the second abutting development and require the first to provide 50% of the cost.

3.

That the provision of maintenance for the advertising display equipment, excluding electricity, shall be the responsibility of the City or its appointee.

SECURITY 1.

That the private abutting properties be responsibile for providing security in the connecting portion of the pedway on public land in a manner at least as consistant as that provided in their own building.

2.

That under Development Agreement, the City may require the abutting properties to provide additional security including: (a) closed circuit TV surveillance (b) patrol surveillance (c) audio surveillance

3.

That security provision and the cost of such shall be shared in a like manner to that of maintenance.

28.

C.

RESPONSIBILITIES. 1.

Planning and Design.

The Planning Department will assume the primary responsibility for:

40

The preparation and processing of: (i) the overall pedway plan, (ii) pedway development approval and staging.

(

40

The guidelines and/or design of the single routes in preliminary format.

40

Consulting and reviewing designs originating outside the Planning Department.

40

Issuance of necessary permits upon receipt of development applications.

40

That the Planning Department assume the responsibility of preparing a detailed design brief for individual connections taking into consideration both projected pedestrian volumes and level of service to be provided.

The Engineering Department will assume primary responsibilities for:

2.

40

Supervision of all functional and environmental aspects related to pedway development, design and implementation.

40

In the case of private development, the review of design and working drawings for pedway construction

40

In the case of public development, the design preparation of working drawings and the construction of pedways.

Construction and Financing The Parks and Recreation Department will assume primary responsibility for preparation of working drawings and construction of landscaping of public open spaces related to the pedways.

The Engineering and Parks and Recreation Departments will budget for capital expenditures for their respective construction irrespective of method of execution: either by City crews or by outside contractors.

29.

The Engineering and Parks and Recreation Departments will assume the responsibility for preparation of documents for tendering, and if required, execute their respective tendering procedures and supervise the construction process.

30.

I X I GN]cidd

standards for pedway development The following are recommended standards for pedway development based on the Design Considerations discussed in Chapter III. 1.

Pedway Width

To be determined for each location by analysis of flows and determination of level of service to be provided.

2.

Pedway Categories (by minimum clear corridor width)

Spinal Secondary Access 3.

25 ft.

20 ft.

15 ft.

Minimum Width Calculations

II

Corridor Working Width Allow 1.5 ft. of "dead space" on each side of corridor.

41

Pedestrian occupancy factor 25 sq. ft. per pedestrian enables pedestrians to move freely in any direction.

40

The sum of the working widths of pedway branches should not be less than the working width of the single corridor to which they join.

40

If a walkway is abutted by retail commercial space an additional 1.5 ft. increase in width along the commercial frontage is necessary.

40

Any obstruction of the pedestrian path by street furniture or related items should be considered in calculating the working width.

32.

40

The pedway width should be increased by 50% at the nodal points, i.e. activity concentrations, intersections and vertical access points. This increase in width is to allow for changes in direction, placement of street furniture and variations in walking speeds. Flaring should be in proportions 1:3.

40

Where open air malls are created from existing roadway rightsof-way a minimum width of 40' must be provided as pedestrian space to al/ow for landscaping, street furniture, window shopping and variations in walking speeds.

41

Overpass Clearance Since all Downtown roadways are designated truck routes, the minimum height from the crown of the road to the underside of the bridge should be 17.5' (5.3m).

40

Fedway Width (overpasses and underpasses) The width of the bridge or underpass should be not less than the width of a pedway at either end.

4.

5.

Height of Pedway

41

The minimum clear height should not be less than 9 ft. excluding "permitted fixtures" (permitted fixtures include light fixtures, public directional signs and other such installations as may be required).

40

The height (H), width (W), ratio should be not more than 1:2.5 (W less than 2.5H).

40

Exceptional circumstances and requirements will be dealt with individually under the discretionary powers of the approving authority.

Change of Level

41

Drastic changes of level within the pedway network should be avoided. No single change in level greater than /7.5' (5.3m) should be permitted unless it is supported by a mechanical device. Where possible, gradual change in level should be accommodated within the structure which supports the pedway.

33.

40The walkway should not be sloped more than 5% in the direction of the path. If the gradient exceeds 5% the walkway falls into the ramp category.

Ramps (i) The maximum gradient permitted: Z in 12.5 (8.0%). (ii) Maximum length (measured horizontally) 30' (10.0 m). (iii) If a ramp greater than 30' in length is required a landing with minimum of 4' (1.2 m) must be provided. (iv) Non-slip materials should be utilized on all gradients over 4%. (v) One ramp to each level within the pedway is required for cleaning and maintenance equipment and to accommodate handicapped persons and baby carriages.

Note: Moving ramps are usually designed at a is degree angle.

Stairs (i) Flights should not contain less than three or more than sixteen risers. (ii) Treads should not be less than twelve inches (.28 m) deep. (iii) Risers should not be more than six inches (.15 m) high. (iv) The product of the rise and run should be 72" to 75". (v) The risers and treads must be uniform within the flight and should be kept uniform within the stairway. In no circumstances will significant differences within the stairway be allowed. (vi) Stairs should have non-slip surfaces.

Note: Moving stairs (escalators) are usually designed at 30 degree angles. (vii) All other elements of stairs and ramps must at least meet current National Building Code regulations. (viii) Exterior stairs and ramps should be protected from snow and ice accumulation by providing either cover, snow melting devices or regular clearance.

34.

6.

Access Points The access points to the walkway network are as follows:

41 40 40 •

40

7.

elements connecting pedestrian thoroughfares, entrances to grade separated crossings, emergency access points, entrances to and from activity areas and, service access points.

41

Where two pedways cross at separate levels a means of level change between the two must be provided (stairs, escalator, etc.).

41

The number of service access (interchange) points between vehicular streets and pedways depends on adjacent uses and these are regulated in detail by the City of Edmonton Building Code

40

Where reasonable, provision should be made for access to the system by the handicapped.

Facilities on Pedways Pedestrian oriented elements recommended for location on or near the pedway system include:

40 Open Spaces (i) pocket parks, (ii) linear open space, malls, semi-malls, etc. converted from conventional streets, (iii) plazas and passages within private properties.

40 Public conveniences spaced at a maximum interval of 500 yards (450 m) a five to six minute walk.

40 Public telephones (serving also as emergency boxes).

40 Mail boxes (located close to vehicular access for easy collection).

40 First aid facilities.

40 Fire prevention equipment (emergency boxes, fire hydrants).

35.

40 Bicycle racks - located at access points from the vehicular streets.

40 Pedway Information (allowable signage). (i) A standardized information guide applied throughout the system, including directional signs, maps, route directories and general information signs. (ii) Identification for individual commercial frontages. •

Shopping areas - including: - perambulator parks, supervised play areas, luggage lockers.

8.

Micro-Climate

40 The open pedways should be designed in such a manner as to minimize the effects of: (i) (ii) (iii) (iv)

Wind tunneling.

Wind carried rain, snow and dust.

Over shadowing by adjacent structures.

Traffic noise.

40 Enclosed pedways should be well ventilated with any necessary ventilation ducts, stacks, etc. accommodated within adjacent developments.

41 Illumination (i) All pedways and malls should be designed to allow the

maximum possible natural light penetration.

Illumination of the pedways is subject to approval by the (ii) Edmonton Power Lighting Engineer. (iii) For reference purposes the following illumination levels are recommended:

40 40 •

9.

walkway path - minimum two (2) foot - candles plazas - minimum one (1) foot - candle stairs, ramps and entrances designated for the handicapped, minimum five (5) foot - candles at floor level.

Drainage All pedways open to weather conditions including partially enclosed pedways, should be drained to the satisfaction of the City Engineer.

36.

41 Recommended slopes for finished surfaces: Absolute minimum - 1/8" per foot or Recommended minimum - 1/4" per foot Recommended maximum - 3/8" per foot Absolute maximum - 1/2" per foot or •

1%. or 2%. or 3%.

4%.

In order to drain pedestrian routes, gutters, downpipes, and such should be accommodated within adjacent developments.

10. Electrical Services.

41 Electrical services will be required on all pedestrian routes for lighting, signs, cleaning equipment, etc.

•

A special duct should be incorporated in all routes with provision for access points, junction boxes, switches, etc.

41 Details of electrical installations should be subject to the approval of the Electrical Engineer.

11. Interior and/or Exterior Finishes.

41 The materials used for interior and exterior finished or passageways should present a uniform identity reflecting the function and character of the routes while aiding the pedestrian in orienting himself and in establishing his right of use in such areas.

•

Materials selected should avoid visual overloading and gimmickry.

41 Maximum wall transparency and "openness" should be provided for both an improved environment and a feeling of security (self-policing).

41 Finish materials for usage in the pedways should be durable, safe and easy to maintain.

41 Materials to be used will be subject to review by the approving authority.

37.

BIBLIOGRAPHY

City of Edmonton, Alberta, General Plan Office Consolidation, March, 1972.

City of Calgary Planning Department, The Downtown Pedestrian, March, 1970.

Engineering and Transportation Department, City of Edmonton Transportation Plan Part I, June, 1974.

Fruin, John J., Pedestrian Planning and Design, Metropolitan Association of Urban Designers and Environmental Planners, Inc., New York. N.Y. 1971.

National Research Council, National Building Code of Canada, 1970 Ottawa, 7. Canada.

38.