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POLICY REPORT
URBAN STRUCTURE

Date: February 22, 1999
Author/Local: Ian Adam/7331
RTS No. 00469

CC File No. 5562

TO:	Vancouver City Council
FROM:	General Manager of Engineering Services
SUBJECT:	Amended Report - Co-management Principles - Major Road Network

RECOMMENDATION

A. THAT City Council support the Principles of Co-management of the Major Road Network as in Appendix A in this report.

B. THAT the Principles of Co-management of the Major Road Network be transmitted to the GVTA with a request that they be adopted by the Board.

C. THAT Council consent to designation of the Major Road Network in Vancouver, as illustrated in Appendix C, on the condition that the GVTA Board adopt the Principles of Co-management.

D. THAT the GVTA be advised that the City may submit revisions to the designation of streets in the downtown peninsula, as a result of the Downtown Transportation Plan, and may submit restrictions to the hours of operation of trucks on certain routes, in accordance with the Transportation Plan.

E. THAT staff report back on development of standards of maintenance, management and operation, and on the issue of loss of funding if one roadway fails to comply with standards.

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F. THAT Council adopt a principle that a portion of annual savings from the GVTA funding for regular maintenance be allocated to supplement existing budgets for improving pedestrian safety, comfort and convenience; reducing speeds; and other actions to address traffic impacts of the MRN.

CONSIDERATION

G. THAT the City’s consent to the designation of Major Roads not include Seymour, Howe, Nelson and Smithe streets at this time.

COMMENTS of the General Manager

The General Manager of Engineering Services RECOMMENDS approval of the foregoing.

After further discussion with the public, the GVTA’s MRTAC group, and staff, a revised set of major road principles has been prepared that more effectively covers all interests, while maintaining the intent of the principles submitted previously. Accordingly, the General Manager of Engineering Services recommends A through F, and submits G for consideration.

The Director of Central Area Planning and the General Manager of Community Services are concerned that designation of some streets in the downtown at this time may limit reasonable choices arising out of the Downtown Transportation Plan. To the extent that this involves streets, such as Georgia and Hastings, where almost any future scenario would see these as major streets, this is a less urgent concern. To the extent that this involves streets bisecting newly emerging downtown residential areas, such as the Smithe/Nelson and Howe/Seymour couplets, this is a difficult problem. Of particular concern is the fact that if the streets are designated, the City would not control any de-designation that might be recommended by the Downtown Transportation Plan, as all revisions to the network are subject to the approval of the GVTA. It is preferable not to designate such streets at this time. While the network in the short run would be incomplete, the practical functional implications would be modest, as would be the loss of revenue to the City. The intention of the Downtown Transportation Plan would be to define the appropriate links to complete the MRN.

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POLICY

Council has supported in principle the formation of the GVTA and its responsibilities for funding and governance of the transportation facilities, and the establishment of a Major Road Network, including the Vancouver component of that network.

DISCUSSION

The previous report of January 12, 1999 set out the background, legislation, public process and guidelines for transportation funding and governance, with particular reference to the establishment of the Major Road Network under the Livable Region Strategic Plan. To clarify the respective roles of the municipalities and the GVTA, the report recommended a set of principles for co-management of the network.

At its meeting of February 4, 1999, the Planning and Environment Committee considered this report, and directed that the three Vancouver representatives on the GVTA Board meet with interested citizens, and staff, to discuss the Co-management Principles, for a report back to Council on February 16, 1999. Meetings were held on February 10 and 19, 1999, and a revised set of Principles was proposed. After detailed review and revisions, these Principles are attached as Appendix A. These Principles have also been reviewed and endorsed by a subcommittee of the regional Major Roads Technology Advisory Committee.

These new Principles approach the issue of Co-management in a much more fundamental manner. They explicitly recognize the dual interests in effective travel, and in neighbourhood protection. They also restore the concept of a dispute-resolution process to deal with disagreements, as originally approved by the GVRD Board. These Principles are the result of the combined efforts of all involved, and are recommended for adoption by Council and to be forwarded to the GVTA Board, as the basis for an understanding on the designation of Major Roads.

Because of the very tight schedule leading up to the inauguration of the GVTA on April 1st, 1999, it is recommended that Council give conditional consent to designation of the major roads in Vancouver. This consent would not take effect unless and until the GVTA Board officially adopts the Principles of Co-management. The proposed network was originally reported to Council on December 8, 1998. That report presented two different methods to deal with streets in the downtown area, as well as motions on funding of remedial measures, restricted hours for trucks, and the issue of roadway standards. Those proposals are attached as Appendix B, and represented in the recommendations of this report.

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There will continue to be development of the processes and relationships relating to Major Roads, following April 1st. The program of developing a strategic transportation plan will be pursued. The standards for maintenance, etc., of the roads will still need to be prepared, as well as developing an understanding of the monitoring processes, and how to deal with roads that do not comply with the standards. Completion of these steps is expected to take up to two years.

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APPENDIX A

PRINCIPLES FOR THE CO-MANAGEMENT OF
MAJOR ROADS IN VANCOUVER

Relationship to Livable Region Strategic Plan

The Livable Region Strategic Plan provides for growth in population and employment, which will create additional travel demand; much of that travel will be between town centres, and other activity centres.

Effective movement of people and goods is essential for the economic and social well-being of the region. Protection of neighbourhoods from the adverse consequences of traffic and traffic growth is essential for the well-being of neighbourhoods.

The Livable Region Strategic Plan, in conjunction with municipal/regional context statements, give priority to travel by pedestrians, bicycles and transit first, and automobiles last, and to goods movement.

It is in the interests of the Region and all municipalities to have an effective, well-managed major road network, consistent with the Livable Region Strategic Plan and the municipal/regional context statements.

Therefore:

1. The GVTA and the municipalities will manage the major road network to ensure effective movement of people and goods and service to land use, while protecting the interests of neighbourhoods on and adjacent to major roads.

2. The GVTA will develop a strategic transportation plan in accordance with the GVTA Act, in consultation with affected municipalities, sector interests, and the general public. The GVTA, in consultation with affected municipalities, may set out corridor targets for all travel modes and establish acceptable levels of service which are consistent with the Livable Region Strategic Plan and the municipalities’ regional context statements. The plan will include techniques to manage travel, including transportation demand management initiatives, and will provide for monitoring against targets.

3. Increases in vehicle capacity or other roadway changes will not be implemented without the approval of the municipality. Failure of a municipality to give such approval will not result in the with-holding of funds.

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4. The plan and targets will be reviewed and revised every three years, and the relevant targets and management techniques will be adjusted as circumstances require to balance the need for movement of people and goods, service to land use, and impacts on local neighbourhoods on and near major roads.

5. A mediation and dispute resolution process will be developed for application if a municipality and the GVTA disagree on targets, management techniques, and neighbourhood protective measures in the plan.

APPENDIX B

MOTIONS FROM COUNCIL DECEMBER 8, 1998

“A. THAT the City consent to the designation of the streets indicated on Figure 2 (and listed in Appendix C) by the Grater Vancouver Transportation Authority (GVTA) to form part of the Major Road Network (MRN) subject to receipt by the City of a commitment from the Province to amend section 21(1) of the Greater Vancouver Authority Act to eliminate the uncertainty created by the use of the word “limit”, and further THAT the GVTA be advised that the City may request the GVTA to revise designations of streets in the MRN in the downtown peninsula, as a result of the Downtown Transportation Plan;

OR

B. THAT the City consent to the designation of the streets indicated on Figure 2 (and listed in Appendix C) except for Seymour, Howe, Nelson and Smithe Streets, to form part of the Major Road Network (MRN) subject to receipt by the City of a commitment from the Province to amend section 21(1) of the Greater Vancouver Transportation Authority Act to eliminate the uncertainty created by the use of the word “limit”;

RECOMMENDATION

C. THAT Council adopt a principle that a portion of annual savings from the GVTA funding for regular maintenance be allocated to supplement existing budgets for improving pedestrian safety, comfort and convenience; reducing speeds; and other actions to address traffic impacts of the MRN;

D. THAT the GVTA be advised that the City may request the GVTA to consent to an amendment of City by-laws to restrict the hours of operation of trucks on some streets in accordance with the City Transportation Plan;

E. THAT Council express its concern over the inclusion of standards of management and operation in section 19 and 20(a) of the Greater Vancouver Transportation Authority Act, and instruct staff to meet with GVTA to achieve greater clarity and definition of these terms, and seek legislative amendments if necessary.”

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(c) 1998 City of Vancouver