Downtown Ladner Waterfront Design Brief

Downtown Ladner Waterfront Design Brief
Downtown Ladner Waterfront Redevelopment Advisory Committee March 2010

Table of Contents
Background and Introduction ..............................................................................................................................1
Planning Principles ........................................................................................................................................... 3
Consideration of Ideas .......................................................................................................................................... 5
Ideas for the Brackman-Ker and 7 Seas Buildings ................................................................................................................. 5
Ideas for New Buildings ....................................................................................................................................................... 12
Parking Relocation Ideas ..................................................................................................................................................... 14
Ideas for Waterfront Circulation .......................................................................................................................................... 16
Ideas for West Side of Chillukthan Slough ........................................................................................................................... 18
Ideas for the Waterfront Dyke ............................................................................................................................................. 18
Ideas for Expanded Short-Term Public / Visitor Moorage ................................................................................................... 18
Ideas for Public Amenities ................................................................................................................................................... 19
Summary ........................................................................................................................................................ 20

Downtown Ladner Waterfront Redevelopment Advisory Committee Study Area
Downtown Ladner Waterfront Redevelopment Advisory Committee

Background and Introduction
The Downtown Ladner Waterfront Redevelopment Advisory Committee (DLWRAC) was appointed by Delta Council to work with
municipal staff and consultants to consider ideas for the redevelopment of the waterfront in Downtown Ladner. Through a series
of Committee meetings and a day-long Stakeholder Meeting on October 31, 2009 at the Ladner United Church, the Committee has
considered the urban design character of the waterfront, ecological and environmental issues and constraints, and potential partners
and users of new development in a variety of configurations.
The Terms of Reference for the DLWRAC are:
“To advise Council on the redevelopment Ladner waterfront, focusing on the north side of Chisholm Street between Spot on
the Water Park and Delta owned properties located in the Ladner waterfront area, and including the Chisholm Street
waterfront properties.”
The Committee’s mandate is that it will develop a Ladner Waterfront concept plan for the consideration of Council that addresses the
following:
“i) Establishing a vision for the waterfront
ii) Identifying appropriate land uses
iii) Public access to the waterfront
iv) Open space concepts and other functions and amenities
v) Protection and enhancement of heritage features
vi) Design characteristics for new buildings and structures
vii) Transportation strategy (including parking)
viii) Environmental objectives
ix) Heritage Component.”
This Design Brief is a summary of the Committee’s work to date, prepared for presentation to Delta Council on March 2, 2010 and
to further conversations with stakeholders and the Ladner community. This report summarizes the work of the first phase of a two
phase work program.
Design Brief March 2010 1

Planning Principles
A set of Planning Principles has been developed to establish the directions for redevelopment of the waterfront. These planning
directions have emerged from discussions with the DLWRAC and community stakeholders and from Delta’s plans and policies for
Ladner.
• Encourage a mix of uses that will bring activity to the waterfront and that are appropriate and compatible with
the heritage infrastructure, character, and existing commercial uses along Chisholm Street.
• Increase synergies among tourist destinations and services including walking, cycling, shopping, restaurants,
farm and winery tours, public markets, local agricultural product sales, recreational boating, kayaking and
other non-motorized boating, commercial fishing equestrian activities, heritage tourism and museum visits, art
galleries and studios, and nature observation and eco-tours.
• Enrich the visitor experience through enhanced public amenities, such as washrooms and seating, and
improved streetscapes, view corridors, and waterfront access.
• Increase opportunities for pleasure boaters to visit Ladner by river and find short-term moorage to visit area
destinations.
• Streamline the development approvals process and explore redevelopment incentives.
• Encourage small scale and local retail at the waterfront and within the Village.
• Interpret the agricultural, fishing, First Nations and multicultural heritage of Ladner along the waterfront
and throughout the Village, telling stories and displaying artifacts (or replicas) associated with appropriate
locations.
Design Brief March 2010 3

Ideas for potential development incentives have been discussed among the Committee and staff at the January 12, 2010 meeting
with a number of possible approaches being identified:
• Combine rezoning and increase in density in return for having developer deliver desired public amenities
• Use a density transfer policy
• Pre-zone properties
• Waive development application fees for a period of time
• “Front of the line” incentive, whereby staff would facilitate discussion between the developer and all the different departments,
to assist in getting through the municipal approvals process easily and quickly
• Appointment of a designated planner familiar with the study area to streamline the process for development applications
• Offering a tax discount (Tax Incentive Program) over a period of time similar to a recent Abbotsford Bylaw (1st year 100%
discount, 2nd year 80%, 3rd year 60%, 4th year 40%, and 5th year 20%)
• Development proposals which precede the adoption of a plan and strategy for the area could proceed if they fit the emerging
directions for the Plan.
Ladner Waterfront Water-based Tourism
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Downtown Ladner Waterfront Redevelopment Advisory Committee

Consideration of Ideas
A range of ideas that can be considered separately or, in some cases, in combination has been considered by the DLWRAC that
address:
• Redevelopment and use ideas for the Brackman-Ker and 7 Seas buildings
• Massing and urban design options for new buildings on the waterfront side of Chisholm Street
• Approaches to reconfigure and increase parking opportunities
• Waterfront circulation improvements for pedestrians and cyclists
• Improvements for the west side of Chillukthan Slough
• Upgrading the waterfront dyke
• Ideas for expanded short-term public / visitor moorage
• Potential public amenities to support the urban design intentions for the Ladner waterfront.
Ideas for the Brackman-Ker and 7 Seas Buildings
Delta has acquired ownership of the Brackman-Ker Warehouse and adjacent 7 Seas building. Introducing uses into these structures
is challenging given their condition, especially the deteriorated wooden piles under the Brackman-Ker building. Adaptive reuse is
further complicated by the floodplain requirements that require habitable uses to be above the datum established for the area. A
structural assessment of the buildings has been commissioned by Delta and will be undertaken early in 2010. A decision among ideas
should wait for the results of this study.
A range of ideas have been identified including:
Idea 1: Adapt the Brackman-Ker building as a climate-controlled public building for a range of arts, cultural and community uses. This
idea is very costly and would likely require a complete rebuilding of the structure, using what can be reused from the heritage fabric,
and at a higher elevation to meet floodproofing standards. Heritage practice would suggest that the building massing be retained but
new openings for doors and windows would likely be incorporated to support the new uses.
Challenges to this idea include: lack of public parking for event-based crowds, lack of identified need in Delta for new arts / cultural
space, and lack of arts and cultural funding at municipal and senior government levels. Private, for-profit sponsorship is unlikely.
Design Brief March 2010 5

Precedent for a Climate-Controlled Adaptive Re-Use
Existing Condition of Brackman-Ker Warehouse and 7 Seas Building
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Downtown Ladner Waterfront Redevelopment Advisory Committee

Idea 2: Reconfigure the Brackman-Ker building with new piles and a new floor at the elevation required for floodproofing within the
existing height envelope. This would result in lower costs than the previous idea and a lower ceiling height.
This building option could be used to house activities that do not require climate control. Small internal ‘pavilion’ structures could
be climate-controlled for specific purposes such as offices and washrooms. Potential uses could include: public market, display of
agricultural and fishing industry artifacts, small boat construction, eco-tourism facilities such as kayak and canoe storage and rentals,
etc.
Adaptive Reuse of the Wychwood
Streetcar Barns as Artscape, Toronto
Design Brief March 2010 7

Examples of Non-Climate-Controlled Adaptive Reuse - Aberdeen Pavilion, Ottawa, Roundhouse Community Centre and Granville Island
Public Market, Vancouver
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Downtown Ladner Waterfront Redevelopment Advisory Committee

Idea 3: Retain and stabilize the Brackman-Ker building in its current,
historic configuration and elevation as a covered public open space for
uses that would not require floodproofing: temporary market stalls, small
boat storage, recreational activities, etc.
The Committee suggested other ideas that involved rebuilding the
Brackman-Ker Warehouse, perhaps using some original material, but
these ideas were thought to risk loss of existing building status for
approvals with FREMP (Fraser River Estuary Management Program).
These ideas could be cost-effective if approvals are achievable.
Britannia Heritage Shipyard
Sketch of Brackman-Ker as an Open Pavilion
Design Brief March 2010 9

Idea 4: The 7 Seas building could be adapted for retail commercial uses with either small or large space requirements. A series of
small shops could be accommodated along the east side with access from a public boardwalk. The waterfront deck could be adapted
for an outdoor patio associated with a restaurant.
Examples of Small
Retail Shops in
Horseshoe Bay and on
Granville Island
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Downtown Ladner Waterfront Redevelopment Advisory Committee

Idea 5: The upper floor of the 7 Seas building could be used as a loft-type space for an office use, such as a design or engineering
firm, or as residential use. Parking requirements would need to be met using cash-in-lieu provisions.
Design Brief March 2010 1 1

Ideas for New Buildings
Potential for new buildings or additions to existing ones is constrained by the FREMP red zone status of the undeveloped sections of
waterfront foreshore. New structures affecting the foreshore would need to provide compensation for environmental impacts and to
be rationalized in terms of significant public benefits. Ideas for discussion include:
• A building on the already paved area immediately east of the 7 Seas building.
• One additional long, narrow north-south building between 7 Seas and Massey’s. The public advantages should include making a
strong public realm link along the entire south edge of this property to meet the urban design guidelines developed for Chisholm
Street.
• Redevelopment of the wooden building site between Massey’s and Speed’s on its existing footprint or with a small addition.
• Minor addition to Speed’s Pub.
• Redevelopment of Sharkey’s to better engage the waterfront.
• Second storeys with residential and/or office uses over new buildings or within redevelopment of Speed’s or Sharkey’s using cashin-lieu
for parking requirements.
• Redevelopment of sites on south side of Chisholm Street for commercial or mixed use up to four storeys.
Sketch Elevation of Potential New Building
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Downtown Ladner Waterfront Redevelopment Advisory Committee

Perspective Sketch of Potential New Building
Design Brief March 2010 1 3

Parking Relocation Ideas
Parking strategies for additional spaces are key, especially if new development on the waterfront is proposed and depends on a cashin-lieu
approach.
• Reconfigure Chisholm as one-way narrow access road to capture public right-of-way land for a combination of more on-street
parking and more public realm space.
• Remove parking from waterfront side of Sharkey’s, compensating with new parking spaces nearby and improve public access on
waterfront side.
• Provide access to parking in Ladner Harbour Park lot with bridge, small ferry and/or shuttle access to the Village; consider bridge
as a longer-term, more expensive idea to be implemented after initial success of improvements creates sufficient demand.
• Consideration of a parking lot within Spot-on-the-Water Park is not supported by the DLWRAC.
The idea of making Chisholm into a one-way street was mentioned by a number of stakeholders. Several options were studied with
combinations of parallel and angled parking. An estimated gain of 13 more parking spaces was evaluated by the DLWRAC as not
warranting the risk that introducing one way might harm businesses and the viability of the Village commercial uses.
Area with Potential to
Replace Parking with
Public Realm Amenities
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Downtown Ladner Waterfront Redevelopment Advisory Committee

Location and Estimated Number of Existing Parking Spaces
Design Brief March 2010 1 5

Ideas for Waterfront Circulation
Ideas for improved circulation within the study area include:
• Dyke elevation walkway that utilizes existing components such as the wood front porch on Massey’s and the front of the 7 Seas
building
• Floating walkways
• Pedestrian / cyclist draw bridge and pier
• Small electric ferries
• Walkways perpendicular to dyke leading to ‘porches’.
Existing ‘Porch’ along
the Ladner Waterfront
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Downtown Ladner Waterfront Redevelopment Advisory Committee

Waterfront Access Examples -- Electric Ferries, Boardwalks and
Floating Walkways
Design Brief March 2010 1 7

Ideas for West Side of Chillukthan Slough
The west side of the slough could provide improved pedestrian and bicycle access and add more to the character of the waterfront:
• Piled walkway over bank
• Roadside path to replace current jersey barriers
• Additional parallel parking as a buffer for pedestrians. This idea would be integrated with the narrowing of Chisholm Street.
Ideas for the Waterfront Dyke
Meeting floodproofing standards is an issue, especially for existing structures:
• Raise height to current standard.
• Accept flooding of some areas.
Ideas for Expanded Short-Term Public / Visitor Moorage
Several locations can be considered for public moorage:
• Infilling gaps along north side of harbor with new floating docks. This idea
should be integrated with plans for better access to the village.
• New pier and floats at Spot-on-the-Water Park.
• New floats and access from municipal land east of the 7 Seas building.
Short-term Public Moorage on Granville Island
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Downtown Ladner Waterfront Redevelopment Advisory Committee

Ideas for Public Amenities
Other amenities for discussion and potential inclusion in the urban design concept include:
• Public art
• Night lighting including new street lights, uplighting of buildings, and low level or bollard lighting along boardwalks
• Historic interpretation through signage and placement of artifacts.
Examples of Appropriate Themes for Public Art
Design Brief March 2010 1 9