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Supporting Transit-Oriented Development along the Southwest Rapid Transit Corridor in Winnipeg: Recommendations for Station Area Planning By Vicky Reaney A Practicum submitted to the Faculty of Graduate Studies of The University of Manitoba in partial fulfillment of the requirements of the degree of MASTER OF CITY PLANNING Faculty of Architecture University of Manitoba Winnipeg August 25, 2011 Copyright © 2011 by Vicky Reaney ABSTRACT This practicum examines the opportunities and challenges for transit-oriented development (TOD) at strategic station areas along the Southwest Rapid Transit Corridor (SWRTC) in Winnipeg. Research included three case studies that investigated policy support, station area planning and implementation tools in the City and County of Denver, City of Boulder and the City of Ottawa. Three recommendations are outlined in the concluding chapter. The first is to develop Smart Growth land use policies that direct growth to station areas along the SWRTC. The second is to develop station area plans that indicate the permitted land uses, urban form and densities at station areas. The third is to create a zoning overlay for TOD to that embraces compact, pedestrian oriented development, mixed land uses and reduced off-street parking requirements. These recommendations are of particularly benefit to the City of Winnipeg and to other municipalities that are investing in rapid transit systems and TOD. Keywords: transit-oriented development, station area planning, Winnipeg, Southwest Rapid Transit Corridor, bus rapid transit. ii ACKNOWLEDGMENTS Many people have helped me complete this practicum. I would like to thank my committee for their patience, support and guidance: David van Vliet, Richard Milgrom, and Susanne Dewey-Povoledo. Many thanks to the interviewees who volunteered their time to meet with me. I would like to thank my parents, colleagues and professors whose support made the completion of this Master‟s degree possible. Funding from the Maxwell Starkman Scholarship in Architecture and Faculty of Architecture‟s Urban Design Scholarship are gratefully acknowledged for enabling the field study component of this practicum. iii TABLE OF CONTENTS Abstract………………………………………………………………………….. ii ...Acknowledgm……….…...........…....ents……... ………...…………………………………………..….. iii ……..…...........List of Tables ……………………………….... ……………………………………. vi …List of Figures..............………………………………………………………….. vi List of Copyrighted Images................................................................................... vii CHAPTER 1: INTRODUCTION 1.1 Problem Statement……………………………………….......................... 1 1.2 Purpose and Scope of the Research………………………........................ 2 1.3 Research Questions…………………………............................................. 4 1.4 Research Methods and Analysis……………………................................. 5 1.5 .......Assumptions and Limitations…………………….........................…….... 9 1.6 Importance of this Study…………………………..........................…....... 11 .... 1.7 Outline of Document……………………………….................................. 13 CHAPTER 2: PLANNING FOR TRANSIT-ORIENTED DEVELOPMENT IN NORTH AMERICA 2.1 Integrating Transit, Land Use Planning, and Urban Development………. 16 2.2 Origins and History of Transit-Oriented Development……...................... 21 2.3 Performance-based Definition of TOD…………………........................... 23 2.4 Planning Processes and Implementation Tools……………….................. 28 2.5 Impacts of TOD on the Built Environment and Travel Behaviour………. 35 2.6 Robert Cervero‟s Transit Metropolis: A regional strategy…..................... 36 2.7 Effect of the Type of Transit Investment on the Transit-Land Use Relationship……………………………………………………………… 39 2.8 Chapter….. Summary…………………………………………....................... 42 CHAPTER 3: THE POTENTIAL FOR TRANSIT-ORIENTED DEVELOPMENT IN WINNIPEG 3.1 Introduction to Winnipeg…….......………….………………................... 46 3.2 Key…………-informant Interviews………………………...................................... 48 3.3 Planning and Policy Support for TOD………..…………...…………...... 49 ………………………….. iv 3.4 The Southwest Rapid Transit Corridor and Station Areas…....………… 58 3.5 Directions for Case Study Research……...……………...………............. 73 CHAPTER 4: DENVER UNION STATION 4.1 Municipal and Regional Context…………..………………….................. 78 4.2 Planning and Policy Support for TOD………………………….…….…. 85 4.3 Denver Union Station and TOD in Downtown Denver…….….………... 87 4.4 Chapter Summary…………………………………………….……......... 99 CHAPTER 5: BOULDER TRANSIT VILLAGE 5.1 Municipal and Regional Context……………......…….............................. 102 5.2 Planning and Policy Support for TOD……………………....................... 107 5.3 Boulder Transit Village………...………………………….................….. 110 5.4 .Chapt er Summary…………………………………………...................... 120 CHAPTER 6: WESTBORO STATION IN OTTAWA 6.1 Municipal and Regional Context………………………….............…....... 124 6.2 Planning and Policy Support for TOD………………………................... 129 6.3 The Richmond. Road/Westboro Community Design Plan…….................. 135 6.4 Chapter Summary…………………………………………...................... 148 CHAPTER 7: FINDINGS AND RECOMMENDATIONS 7.1. Summary of Research…………………………….………….................... 150 … 7.2 „Lessons Learned‟ from Research.............................................................. 153 7.3 Recommendations........................................................................…..…… 172 .…...…………….......... 7.4 Implications of Research Findings for Planning Practice.......................... 177 7.5 Directions for Further Study………………………………...................... 178 BIBLIOGRAPHY……………………………………………............................. 182 ......................................................................... Appendix A: Interview Guide Template…………………………….......... 190 Appendix B: Letter Of Informed Consent………………………………... 192 Appendix.. C: Hiawatha Line/Minneapolis Status Report……………....... 194 v LIST OF TABLES Table 1: Contextual Data for Case Studies and Background Research……... 158 Table 2: Summary of Findings from Case Studies….……………..…….….. 168 LIST OF FIGURES Figure 1: TOD in Curitiba, Brazil……………………………………………………...42 Figure 2: Existing land uses at the Fort Rouge Yards…………………………………..65 Figure 3: Existing land uses at Harkness station………………………………..……...66 Figure 4: Existing land uses at Osborne Station……………………………………….67 Figure 5: Graham Avenue Transit Mall…………………………………………...........68 Figure 6: Winnipeg‟s Union Station…………………………………………………..69 Figure 7: The 16th Street Transit Mall in Denver..............................................................83 Figure 8: LRT Station in Downtown Denver....................................................................83 Figure 9: Denver Union Station Area…………………………………………………………91 Figure 10: Existing land uses in Downtown Denver………………………………………….92 Figure 11: One Boulder Place in Downtown Boulder……………………………………….104 Figure 12: Examples of planning and development in Boulder……………………………...106 Figure 13: Existing land uses at the Boulder Transit Village site……….................................113 Figure 14: Westboro station area………………………..………………………..……........127 Figure 15: .Built environment along Richmond Road………………………...................140 Figure 16: Existing land uses at Westboro Station……………………….......................141 Figure 17: Streetscaping on Richmond Road………………………....................................145 vi LIST OF COPYRIGHTED IMAGES Image 1: Phase I of the Southwest Rapid Transit Corridor...........................................64 Image Source: Winnipeg Transit 2009a. © Winnipeg Transit, 2009 Image 2: Phase II of the Southwest Rapid Transit Corridor……………………………..72 Image Source: Winnipeg Transit 2009a. © Winnipeg Transit, 2009 Image 3: Rapid Transit System in the Denver Metropolitan Area......................................84 Image Source: RTD 2010a. © Regional Transportation District of Denver, 2010 Image 4: Denver Union Station Transit District…………………………………………….90 Image Source: Denver Union Station - Executive Oversight Committee, 2008. © Denver Union Station Executive Oversight Committee, 2008. Image 5: „Character Districts‟ for the Boulder Transit Village……………………………..112 Image Source: City of Boulder 2007a. © City of Boulder, 2007 Image 6: Zoning districts for the Boulder Transit Village……………….………………118 Image Source: City of Boulder, 2007a. © City of Boulder, 2007 Image 7: Ottawa's Transitway………………………………………………….. 128 ImageSystem………………………..………………………………. Source: OC Transpo, 2009. © OC Transpo, 2009 Image 8: Westboro Study Area………………………………………………………..139 Image Source: City of Ottawa, 2007a. © City of Ottawa, 2007 vii CHAPTER 1 INTRODUCTION This practicum investigates municipal planning support for transit-oriented development. Three case studies illustrate the planning policies, station area planning and other implementation tools utilized in the City and County of Denver, City of Boulder and the City of Ottawa. The purpose of this research is to produce recommendations for the City of Winnipeg to support TOD at strategic stations along the Southwest Rapid Transit Corridor in Winnipeg. This chapter begins with a statement of the research problem, followed by a statement of the purpose and scope of research, and the specific research questions that are addressed. It further includes a discussion of research methods, the limitations and assumptions of the research, and a description of the intended audience. 1.1 Problem Statement For the past three decades, there
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