Lions Gate Crossing Project: Wildlife Resource Considerations

The reconstruction works to the Lions Gate Bridge and the upgrade of the Stanley Park Causeway required careful planning of construction works to ensure that the diversity of fish and wildlife resources that characterize the Stanley Park and the First Narrows were not compromised. The Project is located in an environmentally sensitive area, bounded by Stanley Park and Burrard Inlet. It connects the City of Vancouver with the District of North Vancouver. This case study details measures undertaken by the Lions Gate Project team to ensure that construction impact to fish and wildlife resources was minimal.

The Lions Gate Bridge, built in 1938, is one of the oldest and highest used bridges in the Lower Mainland. Although regular maintenance and minor improvements have been carried out on the bridge over the years, present conditions indicated that the structure required extensive rehabilitation to replace various components that were approaching the end of their life span.

In the early 1990s, the Ministry of Transportation (MoT) conducted a public consultation process known as the Choices Program to assess rehabilitation and replacement options for the Lions Gate Bridge. The Choices Program examined engineering, environmental, and social impacts associated with various crossing scenarios. The outcome of the consultation process was that the existing corridor through Stanley Park was the optimum crossing route. Rehabilitation within the existing corridor was acceptable to local governments and the public on the basis of cost-effectiveness and compatibility with existing road networks. As part of the Choices Program, an Environmental Affairs Sub-Committee [a committee consisting of representatives of the following government agencies: Fisheries and Oceans Canada (DFO), Ministry of Environment, Lands and Parks (MELP), Ministry of Tourism, Culture and Small Business, Parks Canada, City of Vancouver, Vancouver Park Board (VPB), Environment Canada – Canadian Wildlife Service (CWS), the Canadian Coast Guard, and the Canadian Environmental Assessment Agency (CEAA)] was responsible for providing advice and direction to the environmental assessment studies.

A series of studies was undertaken by the Environmental Affairs Sub-Committee to identify wildlife and fisheries resources, assess habitat locations, and analyze potential impacts on fish and wildlife resources for the Lions Gate Crossing options. The subcommittee utilized these environmental assessments as baseline data for terrestrial and marine wildlife populations and habitat. The subcommittee compiled information on the basis of existing records, interviews with knowledgeable persons, air-photo analysis, and field reconnaissance. Environmental assessments detailing the wildlife distribution along the Stanley Park Causeway and the Lions Gate Crossing were completed. A technical report and an environmental impact assessment were produced describing the project, outlining the methods used, discussing the results of the census and behavioral surveys, and drawing conclusions about the nature of waterbird use, particularly the waterfowl species. The rehabilitation project involved widening of the Stanley Park Causeway, widening the sidewalks along the Lions Gate Crossing to provide better cycling and pedestrian access, resurfacing the Stanley Park Causeway with new pavement, and replacing the bridge deck with wider prefabricated sections. A bridge erection scheme and causeway widening plan were developed which included mitigation measures to address fish and wildlife resources adjacent to the Stanley Park Causeway and on the south and north foreshore of Burrard Inlet.

In April 1997, plans were announced for the rehabilitation of the Lions Gate Crossing. The Project was undertaken by the Ministry of Transportation (MoT), the British Columbia Transportation and Financing Authority (BCTFA) and the Vancouver Park Board (VPB).

One of the Lions Gate Project Team’s primary objectives was to ensure that construction activities had minimal effects on fish and wildlife resources. To fulfill this goal, the Project Team:

1) Identified potential issues and concerns with environmental agencies through a literature review, field surveys, and fish and wildlife studies, and developed recommendations for mitigating impacts on wildlife resources;

2) Conducted assessments for the potential effects and constraints on fish and wildlife resources during the rehabilitation of the Lions Gate Crossing;

3) Assessed how short-term activities, such as construction noise affected the distribution of bird species at the Stanley Park Causeway and the Lions Gate Crossing;

4) Developed an environmental action plan to protect nesting pelagic cormorants and pigeon guillemots along Prospect Point during construction;

5) Obtained permits and approvals from Fisheries and Oceans Canada (DFO), Ministry of Environment, Lands and Parks (MELP), Ministry of Tourism, Culture and Small Business, Parks Canada, City of Vancouver, Vancouver Park Board (VPB), Environment Canada – Canadian Wildlife Service (CWS), the Canadian Coast Guard, and the Vancouver Port Corporation (VPC). Acquired advice and recommendations from the Canadian Environmental Assessment Agency (CEAA) and the Burrard Environmental Review Committee (BERC).

Prior to the start of construction, the Contractor retained an independent Environmental Manager. The Environmental Manager was responsible for ensuring construction activities in sensitive areas were undertaken in an environmentally sound manner, overseeing construction of the habitat mitigation features, and advising the Contractor of areas requiring mitigative action. The Environmental Manager was also responsible for designing and implementing environmental mitigation measures to ensure that construction activities complied with all environmental laws and Project approvals.

In spring 1998, BCTFA conducted an inventory program to assess how construction activities affected wildlife. Field surveys were conducted on forest birds and waterfowl that use the forested habitats within Stanley Park for breeding, feeding, and resting. A total of 89 field surveys were completed for the study, of which 21 were 24-hour surveys. The 24-hour surveys were used as an extension of the regular surveys to include information on nocturnal species. Mammal species (such as raccoon, skunk, coyote, mice, squirrel and bat) were not systematically documented for Stanley Park or any other part of the study area.

In June 1999, the Project team worked with VPB to evaluate potential temporary construction related disturbances of riparian and wildlife habitat in the Stanley Park Causeway corridor and the south bridgehead area to marine and semi-aquatic mammals. Marine and semi-aquatic mammals that frequent the First Narrows include harbor seals, river otter, and infrequently Killer Whale, Grey Whale and sea lion.

It was anticipated that the installation of a drainage outlet structure near Lost Lagoon and construction activities along the Stanley Park Causeway such as jackhamering and pavement grinding, would result in the temporary displacement of waterfowl and other wildlife. Construction activities associated with the Bridge rehabilitation that could cause concern included: the establishment of temporary staging work areas along the south and north foreshores of the First Narrows, the operation of cables and hoists to lift the deck sections, and the use of pneumatic impact wrenches, chippers, and hammers. As a requirement of the BCTFA construction contract, the Contractor developed and implemented an Environmental Management Plan (EMP) outlining management strategies to mitigate potential adverse effects on wildlife resources. The EMP described a range of environmental issues associated with the Project and outlined the corresponding management strategy to mitigate potential effects on the environment. The plan enforced protection recommendations, such as tree root prescriptions, along the Stanley Park Causeway.

The Project Team submitted an Application for a permit to VPC relating to the purposed bridge and Causeway works. The Application included an overview of Project history, a description of existing conditions along the project alignment proposed construction methodology, potential environmental impacts and associated mitigation measures plus a Marine Habitat Assessment report. During a preliminary review of the Application, VPC requested additional information regarding impacts to seabird and marine habitat. Upon acceptance of the Application by VPC, the Application was referred to the Burrard Environmental Review Committee (BERC) for project recommendations. BERC is made up of representatives from DFO, CWS, the Canadian Coast Guard, MELP, and VPC. During the Application Review, DFO determined that the temporary infilling of the work platform at the south shore was subject to Section 35(2) of the Federal Fisheries Act and was subject to a Canadian Environmental Assessment Act (CEAA) screening review. DFO determined that habitat compensation was required to offset temporary impacts to the marine habitat and requested BCTFA to prepare a habitat compensation plan. The Project Team completed a CEAA screening report addressing the following issues: slope stability, contaminated soils, water management, vegetation management, habitat compensation, and pelagic cormorant and pigeon guillemot activities. The project received CEAA approval in August, 1999.

CONSTRUCTION

Rehabilitation and replacement of the Lions Gate Bridge Project began during the 1999 / 2000 winter season. The Contractor’s Environmental Manager consulted with VPC and CWS 30 days prior to the commencement of construction to confirm mitigation measures regarding elevated noise and light levels near the south bridgehead were acceptable. The Contractor paid particular attention to requirements of Section 195 (Protection of the Environment) of the Standard Specifications for Highway Construction to ensure construction impacts had minimal adverse effects.

The Contractor implemented a Noise Mitigation Plan to reduce noise levels related to the operation of construction equipment and related activities. Mitigation measures used to reduce noise effects included: 1) scheduling of certain activities that resulted in the least disturbance to neighboring residential communities; 2) employing physical measures to reduce the noise emanating from equipment; and 3) notifying the public when noise mitigation was not possible.

Construction activities were scheduled to minimize the disturbance of nesting pelagic cormorants and pigeon guillemots at the Prospect Point Cliff (located west of the bridge). The Contractor confirmed that the proposed works would be scheduled outside the sensitive April 1st to September 1st breeding season and that the work area would be confined to the existing footprint of the bridge structure. The Environmental Monitor would be on-site to observe any construction noise effects on the nesting pelagic cormorant and pigeon guillemot species. Noise levels would be measured during construction. If nest abandonment were observed, measures would be taken to reduce that level of disturbance.

Work conducted along the Stanley Park Causeway included the installation of new drainage outlets at Beaver Lake and Lost Lagoon that acted to separate oil and water at discharge points. The drainage outlets were installed along the Causeway to discharge into existent outfall areas. Contractors worked with fisheries timing restrictions when conducting changes in and about streams under Section 9 of the Water Act. The work was conducted during a two-week period and carried out to minimize impacts to wildlife in and adjacent to the Lagoon.

There were plans to construct a temporary work area in the intertidal zone of the south shore. The original proposal was to place fill in the intertidal zone so a barge could rest on the fill while it was used during construction. There were also avoidance activities proposed to minimize impact to mobile (urchins, seastars) or annual (red green foliose algae) marine species as a result of the temporary work area. It was soon determined that a fill would not be necessary as the barge could be located in the work area during high tide, and therefore would not rest on the seabed. However, there were impact avoidance activities conducted on the north shore. In consultation with VPB, temporary fencing was installed 15 meters above sea level to create an environmental buffer zone to prevent damage to sensitive vegetation on either side of the roadway. This would ensure that heavy equipment and construction activity remained above the high water mark and the sensitive salt marsh.

MONITORING

Throughout construction, the Contractor’s Environmental Manager liaised with VPC and VPB concerning activities affecting Stanley Park. The Contractor was responsible for preventing adverse impacts to the environment throughout construction. When impacts were unavoidable, the Contractor implemented mitigation measures in consultation with the Project Team and the appropriate environmental agencies.

To date, the Lions Gate Project Team complied with all the environmental conditions laid out by VPC and BERC (including DFO fisheries authorization). The fish and wildlife studies were designed to minimize impact to environmental resources along the Stanley Park Causeway and the First Narrows. As anticipated, minor wildlife and habitat disturbances occurred during the rehabilitation of the Stanley Park Causeway and the Lions Gate Crossing. The Contractor was responsible for preventing adverse impacts to the environment throughout construction. Environmental monitoring was carried out during construction to ensure that intertidal, seabed and marine backshore vegetation habitat are rehabilitated and function as intended.

The Contractor complied with the terms and conditions under Section 9 of the Water Act and to the Fisheries Act with respect to water quality fisheries timing windows and all work in and about streams. The installation of a drainage outlet structure near Lost Lagoon resulted in the temporary displacement of waterfowl, fish and other wildlife in and adjacent to the area. The work was completed within approximately two weeks and most of the fish and wildlife that utilized the site were already accustomed to traffic noise and human presence. Most waterfowl dispersed to other areas of the Lagoon during the installation of the outlet structure.

Since there was no temporary work area established on the south shore, other than the moorage of a barge, there was very little short-term displacement of marine wildlife, including waterfowl, shorebirds, aquatic furbearers, and marine mammals. These work areas were designed to minimize impacts to fish and wildlife. A particular concern to environmental agencies was the potential disturbance of nesting pelagic cormorants and pigeon guillemots on the Prospect Point cliffs, west of the south bridgehead. The Contractor took into consideration the sensitivity of the nesting birds and made every effort to reduce noise and environmental impact between the Lions Gate Bridge and Prospect Point Cliff.

1) 1999 Standard Specifications for Highway Construction. Section 195 (Protection of the Environment).

2) Canadian Environmental Assessment Act (CEAA) Review: Lions Gate Project, March 10, 1999.

3) BCTFA Lions Gate Project: Application for Project Review. Vancouver Port Corporation Project Review Process. Lions Gate Project Office. Vancouver, B.C. October 1998.

Upon completion, the Lions Gate Bridge and the Stanley Park Causeway will be rehabilitated with three wider vehicle lanes and improved sidewalks providing better motor vehicle, cycling and pedestrian access.

BC Transportation Financing Authority
Box 9900, Station Prov Govt
Victoria, BC Canada
V8W 9R1
Phone: (250) 356-6970
Ministry of Transportation
Environmental Services, Engineering Branch
Chris Zacharias
Environmental Manage
940 Blanshard Street
Victoria, BC Canada
V8W 9T5
Phone: (250) 953-3072
Email: Chris.Zacharias@gems4.gov.bc.ca

Fisheries and Oceans Canada
Habitat and Enhancement Branch, Lower Fraser Area
Brian Naito, R.P. Bio
Unit 3 – 100 Annacis Parkway (Annacis Island)
Delta, BC Canada
V3M 6A2
Phone: (604) 666-8190
Email: NaitoB@pac.dfo-mpo.gc.ca