Agenda Index City of Vancouver

ADMINISTRATIVE REPORT

TO: Standing Committee on Transportation and Traffic
FROM: General Manager of Engineering Services and Director of City Plans
SUBJECT: Update: Transportation Plan Major Initiatives
 

INFORMATION

COUNCIL POLICY

In May 1997, Council adopted the City of Vancouver Transportation Plan, including the mode split targets which emphasize: the need for increased provision and use of transit; limiting overall road capacity to the present level; maintaining an efficient goods movement network; traffic calming in neighbourhoods; and providing more comfortable biking and walking environments.

PURPOSE

This report provides an update on the status of Transportation Plan Major Initiatives for Council’s information. It also includes a summary of City and regional transportation assets for Council’s information.

BACKGROUND

The City of Vancouver Transportation Plan, approved by Council in 1997, is organized into three main sections:

The Plan’s introduction notes that basic directions for transportation in the City, leading up to development of the Transportation Plan, were set by CityPlan, the Livable Region Strategic Plan (1995) and the Regional Transportation Plan (Transport 2021, 1994). The introduction also states that the changes to the system will be gradual and be needed as growth in transportation demand requires. Key elements of the Transportation Plan are:

The Transportation Plan Policies contained in Chapter 3 are supported by tables showing Major Initiatives that are needed to implement these policies. In December 1997, staff reported to the Standing Committee on Traffic and Transportation on action items scheduled for completion within three years. These were summarized in a Project Schedule, which was Appendix A. of the report. Among the report recommendations that were approved, was integrating the Project Schedule into the work programs of Engineering and Planning.

In 1999, Council approved new programs for monitoring the plan and implementing pedestrian areas through Community Visions. This report provides an update on the monitoring program. The Community Visions position approved in Engineering Services has not yet been staffed.

DISCUSSION

Since the December 1997 report, the actions for implementing the Major Initiatives, as outlined in the Project Schedule, have been integrated into City work programs and budgets. Various reports in this regard have been brought back to the Standing Committee on Traffic and Transportation and Council. Progress has been made in completing many Major Initiatives, and work on most initiatives has started or is of an ongoing nature. Some initiatives have not been programmed into work plans due to scheduling constraints, and a shift in priorities to respond to the extension of Skytrain into the City. The updated Project Schedule, for the Major Initiatives contained in sections 3.3. through 3.10 of the City’s Transportation Plan, is attached as Appendix A.

ITEM

ROAD NETWORK INITIATIVES

 STATUS
R1 Complete Port Road. Completion in 2000
R2 Review building lines in the context of the Plan with a view to removing those that are unlikely to be needed, and adding others where priorities have developed. Review underway
R4 Queue jumpers which do not increase road capacity but favour selected modes. In effect
R5 Small changes to improve pedestrian environments. Ongoing
R6 Intersection improvements, such as left turn bays may be required to improve safety at some intersections. These will be designed so as not to increase capacity and wherever possible will be accommodated within existing road width. In effect
R7 Stricter speed limit enforcement on major routes. In effect
ITEM

TRANSIT INITIATIVES

STATUS
T1 Request BC Transit to review with the City the route structures and service. Done
T2 Pilot program for bus bulges and improved boarding and waiting areas. Ongoing
T3 Request BC Transit to improve service to Downtown South, False Creek North, Fraser Lands and Airport, and to implement Downtown loop service. Done
T4 Participate in planning of Broadway LRT, including feasibility of extension to UBC and Downtown. Done
T5 Examine feasibility of extending False Creek trolley to Stanley Park. Done
T7 Request BC Transit to examine expansion of express bus routes. Done
T8 Request BC Transit to pilot mini bus service in city neighbourhoods. Done
T9 Request BC Transit to review fare structure for trips within Downtown to increase transit ridership. Review in 2001
T10 Request BC Transit to adopt U-Pass system for UBC and other major employers and institutions. Approved, UBC
T12 Request reform of transit governance to be more responsive to needs of areas of ridership concentration. Completed
ITEM

CYCLING INITIATIVES

STATUS
C2 Review existing bikeways for possible improvement such as more appropriate positioning of signal push buttons, improved lighting, better pavement maintenance, etc. Ongoing
C4 Paint bicycle logos on the pavement of existing bikeways at all major intersections and on every second block in between. Completed
ITEM

NEIGHBOURHOOD AND PEDESTRIAN INITIATIVES

STATUS
NP1 Reduce speed limits on residential streets to 40 km/h. Awaiting legislation
NP2 Reduce waiting times for pedestrians at traffic signals. Underway
NP3 Initiate new public process for traffic calming projects based on priority of needs across the city. Initiated
NP4 Review building lines (see R2) Study underway
NP6 Adopt criteria for designating pedestrian priority areas. Initiate pilot project. Approved
NP8 Improve pedestrian spaces. Ongoing
ITEM

DOWNTOWN INITIATIVES

STATUS
D1 Prepare a transportation and circulation plan for the Downtown, including a complete review of the Downtown transit system to improve service and choice, improve regional connections and airport links, evaluate alternative transit vehicles (such as mini-buses), establish priorities for “Great Streets”, improve route and destination signage, create pedestrian priority areas, and implement bike lanes and street improvements. Underway
D2 Request BC Transit to improve transit within the Downtown, including a Downtown bus loop, Pacific Boulevard route, free or low fare loop service, and explore feasibility of mini bus service to poorly served neighbourhoods. Done
D3 Implement Greenways and Green Links programs to improve pedestrian routes, facilities and environment in Downtown. Ongoing
D7 Encourage car co-ops and possibly car rental agencies. Done
D8 Review one-way street system in Gastown, Chinatown and International Village, and new residential neighbourhoods, such as Downtown South. Ongoing
D9 Remove truck routes in Yaletown. Completed
D10 Through traffic at Highway 99 to be directed via Second Narrows Bridge. Improve route signage. Awaiting Ministry action
ITEM

GOODS MOVEMENT INITIATIVES

STATUS
GM1 Complete the upgrade of Port Road. Completion in 2000
GM4 Improve functioning of Downtown commercial lanes. Ongoing
GM5 Continue to protect industrial lands for servicing the Downtown and other city businesses. Ongoing
GM9 Post engine brake prohibition on city truck routes and enforce. Completed
GM10 Strictly enforce speed restrictions . Underway
ITEM

FUNDING INITIATIVES

STATUS
F1 Through negotiations with Province, establish a stable and adequate source of revenue for transit funding in the region. Done
F2 Review priorities for City expenditures in Capital Plan and capital budget Done
ITEM

MONITORING INITIATIVES

STATUS
M1 Design a monitoring and review program for transportation as a basis for guiding future policies and budgeting. Done
M2 Report back to Council on transit service and use patterns, walking and cycling facilities, truck movements and issues, overall road network use. Ongoing
M6 Review Capital Plan and annual capital budgets to report on consistency with CityPlan and Transportation Plan. Done
M7 Investigate the feasibility of the GVRD establishing a region wide system of monitoring mode splits on a regular basis. Done

Accomplishments in Implementing Plan’s Major Initiatives

Some of the main areas where progress has been made in implementation of the Plan’s Major Initiatives are:

3.3 ROAD NETWORK ITEMS R1 to R9

… Construction of road improvements for access to the Port of Vancouver will be completed in 2000
… Reconstruction of Georgia St. is underway relating to Stanley Park Causeway improvements, including major improvements for pedestrians, bicycles, trolley buses and road safety
… The Police Traffic Squad has been reinstituted and has increased levels of enforcement

3.4. TRANSIT ITEMS T1 to T12

… Transit governance was reformed to better represent the needs of the region through the formation of TransLink (GVTA) in April 1999
… In May 2000, the Greater Vancouver Regional District approved TransLink’s new Strategic Transportation Plan, which sets out a process for significant City and regional transit improvements over the next five years; under the Strategic Plan, transit use is projected to increase by up to 29% by 2005
… Implementation of rapid transit expansion has been advanced through the provincial and TransLink initiative to extend Skytrain along the Broadway-Lougheed corridor to Vancouver City College
… Rapid Bus service is being expanded with a new route connecting the Downtown to Richmond in 2000, and a new express bus on 41st Avenue
… Transit priority measures such as additional bus lanes, bus bulges and bus signals have been implemented
… Regional and provincial funding has been received to carry out a technical study of potential transit priority corridors
… TransLink has committed to carrying out an updated Vancouver Area Transit Plan, starting in 2001, which will examine system-wide improvements to transit service in the City

3.5 CYCLING ITEMS C1 to C8

… A comprehensive review of City cycling initiatives was completed in the report “Bicycle Plan 1999: Reviewing the Past, Planning the Future”
… Reviews and upgrades to existing bikeways have been completed
… Painted bike lanes have been provided on arterial streets (SW Marine Drive, Burrard St. and Pender St.)
… TransLink has committed to installing bike racks on all buses

3.6 NEIGHBOURHOODS (AND PEDESTRIANS) ITEMS NP1 to NP9
… The Province has indicated that it will support changes that will allow the City to implement a reduced speed limit of 40 km/h on residential streets
… New process for traffic calming, including a better variety of devices, has been implemented
… Corner bulges are now included in all new curb construction projects on local residential streets
… New program for installing curb bulges for safe walking routes to schools has been approved and is underway
… An annual program of speed hump installation is now in effect
… Report on a proposed City Pedestrian Safety Task Force is being prepared

3.7 DOWNTOWN ITEMS D1 to D14

… Downtown Transportation Plan process has begun and is scheduled for completion by the end of 2001
… New bicycle lane on Pender St. implemented in 2000
… Truck routes in the Yaletown area have been removed

3.8 GOODS MOVEMENT ITEMS GM1 to GM11

… As noted above under ROAD NETWORK, improvements for the Port Road system will be completed in 2000
… Signage prohibiting the use of engine brakes has been completed in problem areas

3.9 FUNDING ITEMS F1 to F2

… The new TransLink Strategic Transportation Plan significantly increases transit funding over the next 5 years; spending on additional services and capital programs will increase from $507 million in 1999 to $814 million in 2005
… 2000-2002 Capital Plan and the 2000 Capital Budget have continued to give priority for Transportation Plan initiatives

3.10 MONITORING ITEMS M1 to M7
… An improved City monitoring and review program was approved by Council in 1999 and is in the process of being implemented
… TransLink, has indicated in its Strategic Transportation Plan and 2000 Program Plan that a regional monitoring program will be developed
… Current data on bicycle counts and accidents was reported to Council as part of the 1999 Bicycle Plan

Challenges and Future Work

(1) Improving the Environment for Pedestrians

The Transportation Plan identified the need for better pedestrian facilities and proposals to improve safety. A number of measures are being implemented, including improved traffic calming, curb bulges, and speed humps on local streets and around schools. Council has recently requested staff to establish a Pedestrian Safety Strategic Work Group.

One important measure in the Transportation Plan was to identify pedestrian priority areas in neighbourhood centres, where pedestrian environments are to be especially encouraged (Major Initiative NP6). A start on this process has been made within the CityPlan Community Visions program. In Dunbar and Kensington-Cedar Cottage, pedestrian improvements have been identified and a program of implementation is beginning. Council approved this work in 1999, but the position has not yet been staffed. Staff expect to begin a study within the next 12 months to identify ways of improving pedestrian facilities in priority areas. This program is likely to include:

… a review of safety issues in neighbourhood centres;
… a listing of criteria for identifying locations suitable for designation as priority areas;
… summary and review of best pedestrian planning and design practices in the region, Canada and the United States;
… preparation of a design handbook on planning for pedestrians in neighbourhood centres.

(2) Improving Facilities for Transit Riders

Transit in Vancouver has suffered from overcrowding and pass-ups at peak times, and on some routes, in the off-peak as well. TransLink’s recently adopted Strategic Transportation Plan, promises a significant improvement in the supply of buses on routes currently under-serviced. Engineering and Planning staff will be collaborating with TransLink in the forthcoming Transit Area Plan for Vancouver (scheduled to start in 2001). Major objectives for the City are likely to include:

… improving frequencies on heavily travelled and under served routes, such as Main Street, and Hastings Street (Major Initiatives T1 and T3);
… improving services in areas of the city which are currently poorly served, such as the south east and north east areas of the city (Major Initiative T3);
… encouraging greater use of small community bus services to link up with major transit routes (Major Initiative T8);
… improving service to people who are especially dependent on transit (Major Initiative T1).

There are also a number of initiatives that the City is pursuing which can contribute to the effectiveness of the transit service, and improve facilities for transit riders. Bus stop improvements such as bus bulges and additional concrete landings will continue to be pursued in consultation with TransLink. A joint Engineering-Planning study will be reviewing transit priority opportunities on Main Street, Fraser Street and Hastings Street, in collaboration with TransLink and the BC Transport Financing Authority (supports Major Initiatives T2 and T6).

(3) TransLink Transportation and Land Use Plans

As noted under the Background section, the Vancouver Transportation Plan assumed that key measures of the Livable Region Strategic land use Plan and the Regional Transportation Plan (Transport 2021) would be implemented. Although the recent TransLink Strategic Transportation Plan significantly improves transit funding and service over the next five years, it does not fully meet the level envisioned in Transport 2021. In particular, rapid transit expansion and Transportation Demand Management (TDM) implementation have not kept up with what was envisioned in Transport 2021. These concerns were noted in the report to the March 14, 2000 Standing Committee on Transportation and Traffic regarding the Draft Regional Strategic Transportation Plan. Both the regional land use plan and regional transportation plan are scheduled to be reviewed by the GVRD and TransLink in 2001.

The above concern reinforces the importance of a regular monitoring program to measure progress towards plan objectives, on both a City and regional basis. There is significant interest in knowing where the City is today in meeting the mode split targets noted in Chapter 2 of the Vancouver Transportation Plan. However, this information is currently not available as the City relies on the regional government for this type of information. The most recent regional study was completed by the GVRD in 1996, and does not provide the level of detail that is needed in the Transportation Plan for sub-areas such as Central Broadway. In April of this year, TransLink agreed to formalize their monitoring work plan, in coordination with and cooperation with municipalities. Over the coming months TransLink and municipal staff will be meeting to implement this program. Staff will report on any new data related to Transportation Plan progress as it is released.

Section 3.2.(2) of the Transportation Plan follows Transport 2021, in accepting the importance of Transportation Demand Management measures. One of Transport 2021's chief TDM measures is addressing parking supply and pricing. So far parking has been a focus only in the Downtown, where supply is already limited and pricing has risen considerably. However, as part of its recently adopted regional Strategic Transportation Plan, TransLink proposes to conduct a comprehensive parking study in regard to regional parking charges on commercial parking. This issue presents important land use issues for the City. To the extent that charges could be levied only on paid parking, they could adversely affect the Downtown, in relation to commercial areas outside the Downtown where commercial parking is largely free. Planning and Engineering staff will be participating in this study, and expect to report back to Council within the next 12 months.

(4) Facilitating Goods Movement

Results of a new TransLink Truck Study are expected to be published shortly. The City’s Transportation Plan recognised that industrial lands provide an important service for businesses in the city. A planning study of False Creek Flats is now beginning, and as part of this study, the Planning staff will be preparing a review of land use and transportation linkages between the Flats and Downtown and the Port (Major Initiative GM5).

(5) Planning for the Road Network

Since Council’s adoption of the Transportation Plan, TransLink has adopted a Major Roads Network for the region, which includes a number of roads within Vancouver in accordance with the Transportation Plan. These major roads now receive regional funds for maintenance and capital work. Capital projects do not necessarily mean increases in road capacity. When Council adopted the regional Major Roads Network, it also adopted co-management principles, including the agreement with TransLink that road capacity increases cannot be made without the City’s consent.

As a result of the additional funds now available to the City for capital work on major regional roads, it is important to undertake the “whole route analysis” of arterials proposed in the Transportation Plan. The first to be reviewed will be Knight Street, where there are also concerns for pedestrian safety and traffic impacts on adjoining residences. Major Initiative GM3 is expected to begin within the next 12 months. A similar study for Dunbar Street is also planned. As per Major Initiative R6, consideration will also be given in these initial studies to neighbourhood and roadside traffic mitigation for severely impacted areas. A report on problem areas will form part of this analysis (Major Initiative R8).

1999 Transportation Assets Inventory

To assist with monitoring the Transportation Plan, an inventory of the physical assets which make up the City and regional transportation system has been completed and is attached as Appendix B. The inventory of City assets also includes the main categories of 1999 capital funding. This inventory will be updated on annual basis to show how progress is being made towards Plan objectives, such as increasing the number of greenways and bikeways.

CONCLUSION

In summary, progress is being made in achieving the Major Initiatives identified as being necessary for Transportation Plan policies. Areas where challenges remain have been identified. Staff will report on the status of the Major Initiatives on an annual basis. In future reports, it is planned that additional Major Initiatives will be brought forward, based on current Transportation Plan target comparisons.

Link to Appendix A

Link to Appendix B

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tt000704.htm

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