Supports Item No. 1
T&T Committee Agenda
June 1, 1999

ADMINISTRATIVE REPORT

Date: May 17, 1999
Author/Local: Lon LaClaire/6690
RTS No. 684
CC File No. 5501
T&T Date: June 1, 1999

TO:	Standing Committee on Transportation and Traffic
FROM:	General Manager of Engineering Services in consultation with the Director of Central Area Planning
SUBJECT:	Pender Street Design - Hamilton to Carrall Streets

RECOMMENDATION

A. THAT Pender Street between Hamilton and Carrall Streets be reconstructed with improved pedestrian, cycling and transit facilities, as outlined in this report, with funding of $560,000 provided from the 1999 Streets Basic Capital Budget.

B. THAT further pedestrian, cycling and transit improvements on Pender Street be approved from the GreenLinks fund in the amount of $480,000.

GENERAL MANAGER'S COMMENTS

Unfortunately, this proposal is brought forward in advance of the Downtown Transportation Plan work. However, all indications are that Pender Street will be a major east-west bicycle/pedestrian connection in the downtown. Further, an opportunity exists now to undertake the GreenLinks improvements in conjunction with basic infrastructure upgrades and a developer contribution. As a result, the General Manager of Engineering Services recommends approval of Recommendations A and B.

COUNCIL POLICY

· The Vancouver Comprehensive Bicycle Plan (1988) and the Clouds of Change Report (1990) established the City's policy of promoting and encouraging cycling as a transportation alternative.

· On May 27, 1997, Council approved the Vancouver Transportation Plan which emphasizes the need to provide more comfortable walking, cycling and transit environments in a network of bikeways, greenways and transit facilities.

· On July 18, 1995, Council adopted the Vancouver Greenways Plan, comprising 14 routes.

PURPOSE

This report recommends a new street design for Pender Street between Hamilton and Carrall Streets that improves the pedestrian, cycling, and transit environment.

BACKGROUND

The street and sidewalks along Pender Street between Hamilton and Carrall Streets are generally in poor condition and will soon be due for reconstruction. The width of Pender Street from Carrall Street and Cambie Street is 20 m. It currently accommodates four general traffic lanes with left turn bays at Abbott and Cambie. Conceivably, it could accommodate six moving lanes. This is wider than the sections to the east and the west. Pender street through Chinatown is 12.5 m wide and functions with two moving lanes and two parking lanes. Pender Street west of Cambie is 15.5 m wide and has four moving lanes.

The existing sidewalks in the study area are generally 3.8 m. West of Cambie, the sidewalks are 4.4 m. wide and through Chinatown, the sidewalks are 5.0 m wide.

Vehicle volumes through the study area are similar to the volumes found to the west of Cambie and are between 30 and 100 percent greater than vehicle volumes through Chinatown, where there are only two moving lanes. In 1994, prior to the conversion of Abbott and Carrall Streets from one-way to two-way, a traffic study was done by N.D. Lea Consultants Ltd. for International Village. This study projected future traffic volumes that can be accommodated on the existing four moving lanes and the existing left turn bays at Pender and Abbott Streets.

Pursuant to the letter of agreement with Concord Pacific dated April 3, 1990, City Council agreed to reduce the number of parking spaces to be built around BC Place Stadium, and established a GreenLinks fund representing an equivalent cash payment in lieu of parking to be applied to integrated pedestrian / bicycle / transit networks to the downtown area.

DISCUSSION

The curb and sidewalk adjacent the Europa project (south side of Pender Street between Abbott and Taylor Streets) will be reconstructed this summer. This presents an opportunity to modify this section of Pender Street and redistribute the road width to provide for improved pedestrian, cycling and transit facilities. This can be achieved while maintaining approximately the same number of curbside parking spaces and maintaining the same number of moving lanes for buses and general traffic.

The proposed street design extends from Carrall Street to Hamilton Street (the study area). However, street reconstruction within the study area would occur only where required.

In our review of the study area it was identified that:

· Parking should be provided where possible, particularly along the commercial frontage on Pender Street.

· Pender Street between Hamilton and Gore Streets was approved as part of the "Downtown Historic Trail" in the Greenways Plan (figure 2). There are few trees and a lack of pedestrian amenity in the study area along Pender Street. Pedestrian bulges and sidewalk widening should be considered at all locations, including bus stops, and implemented where possible and desirable.

· Pender Street is the top candidate for an East-West Bikeway connecting the Adanac Bikeway with the Downtown (figure 2). The Adanac Bikeway is one of the City's busiest Bikeways, carrying approximately one thousand cyclists per day. Most of these cyclists are heading to or from downtown. A recent survey of cyclists indicated that the downtown was the number one preferred location for additional cycling routes. This survey showed that downtown bike routes were considered to be a priority over bike routes on bridges.

· A number of transit routes use Pender Street. The resultant frequency of buses, combined with expectant increases in pedestrian flows to and from Chinatown, would support wider sidewalks and bus shelters.

· The existing, partially exposed railway track that crosses Pender Street near Taylor Street is a significant historical feature that should be maintained and fully exposed as part of the overall effort to preserve the former CPR right-of-way as a public open space in the neighbourhood.

The resultant plan that takes into consideration all of the above is shown in Figure 1.

Specifically the plan

· includes four lanes for buses and other traffic,
· maximizes the amount of curb side parking in key areas adjacent to retail activity,
· creates improved pedestrian facilities at intersections and bus stops,
· creates a combination of bike lanes and shared bike/vehicle lanes, and
· maintains existing left turn lanes at Abbott and Cambie Streets.

These improvements on Pender Street are consistent with the intent of the GreenLinks funding for providing improved pedestrian, cyclist/transit links to the downtown. Detailed designs for street lighting, furniture, sidewalk treatment, street trees and other pedestrian amenities would be generated following Council approval and would be coordinated by the City's Greenways staff.

CONSULTATION

A public open house was held in the community (at the SUCCESS offices on Pender Street) on May 26th, the details of which will be reported at the Committee meeting. The open house was jointly organized by Engineering and Planning. Ads were placed in five local newspapers, and letters were sent to all community leaders, and property owners and tenants along Pender Street.

In addition, this plan has been reviewed and is supported by the City Greenways staff, the City's Neighbourhood Transportation Branch (Bikeways), and by the Chinatown Heritage Area Planning Committee. The Bicycle Advisory Committee also supports the construction of bike lanes on Pender Street, as presented to them by Engineering Services staff on April 21, and has further requested that the eastbound bike lane be extended one block by eliminating the four parking spaces on that block of Pender Street (extract from minutes in Appendix A).

FINANCIAL CONSIDERATIONS

The proposed work would cost the City $560,000 to achieve a standard level of finish. A submission for this funding has been included as part of the 1999 Streets Basic Capital Budget. In addition, sidewalk construction adjacent to the Europa project will be funded by the developer. Further funding for enhanced sidewalks, signage, etc. would be allocated from the GreenLinks fund in the amount of $480,000. Of this amount, $180,000 would be applied to the construction of wider sidewalks and $300,000 would be applied to the development of all additional Greenway/Public Way upgrades.

CONCLUSION

The required street reconstruction next to the new development in International Village provides an opportunity for the City to modify the design of Pender Street to accommodate improved pedestrian, cycling and transit facilities, while accommodating future traffic flows. This section of Pender can become a key Bikeway link between the central business district and the Adanac and Ontario Bikeways. The proposed geometric design shown in Figure 1 achieves a balanced use of the street and is supported by local community, cycling and greenways stakeholders.

Staff recommend Council approve the proposed design.

* * * * *

APPENDIX A

Vancouver Bicycle Advisory Committee
Extract from Minutes - April 21, 1999

3. Pender Street Bike Lanes

Lon LaClaire, Transportation Engineer, with the aid of a geometric map of Pender Street between Carrall and Hamilton Streets, reviewed details of a proposal for the street's reconstruction. He pointed out the location of the new International Village development project between Abbott and Taylor Streets, and advised the street's pavement, sidewalks and curbs will be reconstructed. Twenty-four hour parking is being maintained where possible. Painted bike lanes are proposed for sections of the street that are wide enough to accommodate them, and painted bike stencils in hybrid (shared motor vehicle/bike) lanes are proposed for the narrower sections. Mr. LaClaire noted there were problems fitting everything in at the point where Pender Street curves at Cambie Street, due to inadequate width.

Points made during subsequent discussion include the following:

· prefer idea of stencils over designated (painted) bike lanes, which can make the user feel too "safe"; stencils draw motorists' attention to presence of bikes and the fact that they are allowed to be there;
· prefer stencils over bike lanes when alongside curbside parking; motorists may not understand the concept of a bike lane, and that cyclists may leave the lane;
· why allow parking at the point where the street curves (at Cambie), where there are poor sightlines?
· the few parking spots at this transition point should be eliminated; having the bike lane work is what would bring the biggest benefit to the area;
· would like to see a continuous bike lane;
· provisions for bike racks should be considered, especially around VCC;
· Mr. LaClaire made the following comments/responses:

- strong desire on City's part to maintain as much curbside parking in downtown as possible; parking lanes seen as a benefit to pedestrians in that they provide a buffer;
- there may be possibilities of creating sidewalk "bulges" to put in parking without going into cycling space;
- Pender Street is seen as a crucial link and the most direct route for cyclists into the downtown;
- it would be difficult to achieve bike lanes in the downtown which are continuous for several blocks; may have to get them block by block;
- this opportunity is here right now; and there may be more flexibility in the future to capture missing segments or pieces;

· a staff member noted this project will give people an opportunity to see bike lanes in an urban context;
· Committee members made the following additional comments:

- street trees and furniture can be used in place of curbside parking to enhance pedestrian experience;
- we should support incremental changes, as it is often the best we can get, as long as we are moving in the right direction;
- bike lanes on this section of Pender will encourage the future development of additional, connecting bike lanes.

Members agreed that while they support the proposal, there are safety concerns associated with the narrowing of Pender Street where it meets Cambie which should be addressed by eliminating the parking spaces at this location, which would also allow for a more continuous bike lane. As well, it is hoped there will be additional curb lane widenings in order to convert hybrid bike lanes to full bike lanes, as opportunities arise with future redevelopments.

The Committee therefore,

RESOLVED

THAT the Vancouver Bicycle Advisory Committee supports the proposal for bike lanes on Pender Street, as presented to them by Engineering Services staff; and

FURTHER THAT the Committee strongly recommends the removal of the four parking spaces on the north side of Pender Street, immediately east of Cambie Street.

(c) 1998 City of Vancouver