Agenda Index City of Vancouver

ADMINISTRATIVE REPORT

TO: Standing Committee on Transportation and Traffic
FROM: General Manager of Engineering Services and Director of Current Planning
SUBJECT: Downtown Transportation Plan Update
 

INFORMATION

COUNCIL POLICY

Vancouver’s Transportation Plan (1997) provides policy directions for the development of the Downtown Transportation Plan. Emphasis is placed on promoting transit use and other alternatives to the car, and not increasing road capacity into and within the downtown.

CityPlan (1995) directions for transportation place emphasis on walking, biking and transit, and on making better use of the street system to move people and goods.

The Central Area Plan (1991) goals include enhancing the Central Area as a place where pedestrians can move safely, easily and comfortably on all streets, as well as increasing the accessibility of the Central Area while ensuring that its growth does not place an unacceptable burden on its streets, outlying neighbourhoods or the environment.

SUMMARY

The Downtown Transportation Plan is well underway with the initial public consultation effort in gathering ideas and issues completed. Work on the remaining components of the Downtown Transportation Plan is beginning and with an updated schedule, completion of the Plan is anticipated in February, 2002.

A review of the public input received has identified a need to enhance the planned public consultation process with additional workshops and displays. In response, an enhanced public consultation program consisting of issue-oriented workshops, walkabouts and travelling exhibits was added to the work program and will be funded from the existing budget. A major public workshop is also required to help build consensus between the stakeholders. This workshop requires additional funding. Sources for this funding are being pursued.

Findings to date show that the number of residents and the number of employees within the downtown will increase by 60% and 30%, respectively, over 1996 levels. A computer subarea model has been developed to assess traffic implications of changes to the transportation system. This includes whether or not transit services are increased, and whether or not transportation demand measures (eg. bridge tolls, higher fuel taxes and parking charges) are implemented by 2021.

In addition to traffic implications resulting from changes to the transportation system, a social and environmental impact analysis model is being developed to assess the impact on downtown livability and economic health. Consultants are being hired to assist in this effort.

Other upcoming events include a 2nd newsletter, issue-based and community workshops and walkabouts, and a Council workshop on Intelligent Transportation Systems (ITS). Announcements will be made as details are finalized.

PURPOSE

The purpose of this report is to update Council on the progress of the Downtown Transportation Plan.

BACKGROUND

In June 1999 Council approved the planning process for the Downtown Transportation Plan (DTP) as well as a Steering Committee to oversee the preparation of the Plan.

In the past year, several key tasks have been completed including the following:

… Formation of a Steering Committee.
… Establishment of a Downtown Transportation Plan site office in Room 300 - 456 West Broadway.
… Distribution of the first newsletter outlining the goals and process for the Downtown Transportation Plan.
… Hosting of an open house at Library Square to gather ideas and answer questions.
… Completion of the analysis of a questionnaire soliciting input from the public.
… Completion of a computer subarea model for the downtown to help analyse traffic implications of potential future changes.
… Initiation of the development of an environmental and social impact model to guide future transportation recommendations.
… Participation in an ICBC road safety review for the Downtown.
… Meetings with downtown stakeholders and interest groups.
… Coordination with other civic departments and agencies.

We are now creating components of the plan for further discussion based on the feedback from the public.

DISCUSSION

Schedule
Initially the plan was envisioned to be completed by December 2001 in a five-step process. As a result of the recent work stoppage, the schedule has been updated as follows:

Step 1 - Gather Ideas and Issues (June - September 2000) - completed
Step 2 - Create Plan Components (October 2000 - April 2001)
Step 3 - Developing Options and Choices (May - August 2001)
Step 4 - Create a Draft Plan for Discussion (December 2001)
Step 5 - Complete Final Plan (February 2002)

Step 1 has been completed and Step 2 is now underway.

Consultation Process
The Council approved work program for the Downtown Transportation Plan follows a traditional public consultation process with open houses and meetings, informationnewsletters, and working groups. An enhanced outreach program was identified as an option at the time of approval, but was not pursued due to cost (est. $36,000).

Work thus far with stakeholder groups has identified two sets of issues that might prove problematic should they not be sufficiently addressed. Firstly, planning for pedestrian environments and alternative transportation facilities in both new and older downtown neighbourhoods must be more intensive and involve a higher degree of public consultation than earlier envisaged. Greater effort is required to engage public commitment to the Downtown Transportation Plan and to ensure that the plan meets the needs of all downtown communities.

Three consultation initiatives are proposed to address this issue of general public involvement in the planning process:

1) Formation of working groups to participate in issue-oriented workshops for the purpose of developing options and choices for issue areas. It is anticipated that issue areas would be oriented around the following:

Participants would be identified on the basis of stakeholder consultations. Workshops would generally be one-half day in length.

2) Organization of walkabouts in the Downtown’s residential and commercial neighbourhoods. The purpose of the walkabouts is to review transportation problems and opportunities in the various geographic regions of the downtown: Westend and Triangle West-Coal Harbour, Downtown South / Yaletown, CBD, Granville Transit Mall, False Creek North / City Gate, and Victory Square / Gastown / Chinatown / Downtown Eastside.

3) Establishment of a series of travelling exhibits in several downtown locations to assist in generating interest and solutions to downtown’s transportation problems. Some of the locations contemplated are Westend Community Centre, Coal Harbour Community Centre, Roundhouse Community Centre, Commercial Core (eg. HSBC), Downtown Eastside /Chinatown (eg. International Village) and False Creek South Community Centre.

The above enhancements to the consultation process can be accomplished within the existing approved work plan and budget.

Despite extensive consultations and careful formulation of the terms of reference for the Downtown Transportation Plan, the division between groups interested primarily in livability and quality of life (i.e. residents) and groups interested primarily in access and commercial viability (i.e. businesses) remains large. This division exists in part because members of different groups seldom come into meaningful contact with one another. This division may impede the formation of a consensus at the conclusion of the planning process.

A major public event could be used to bridge the gap between some of the stakeholders and assist in forging a public consensus behind a single set of options for future implementation. Tentatively entitled, “Bringing Downtown Together,” this major workshop would bring together large numbers of individuals from the various downtown communities for discussion of future options and choices for the Downtown Transportation Plan. The workshop should also be educational to most of the participants as they would be presented with downtown transportation developments elsewhere in North America and the world. The workshop (about 1.5 days) is proposed to be held near the end of the options and choices development process. Involving the participation of resource people and downtown transportation experts from outside Vancouver, the workshop would be planned to engage key members of downtown stakeholder groups, as well as members of the general public, to assist in narrowing future options for the Downtown Transportation Plan.

No budget currently exists for the proposed major workshop. Internal funding sources are being reviewed and potential partnerships with outside agencies or groups are being explored.

Findings to Date
The downtown peninsula is becoming busier and increasingly diverse, and these trends are anticipated to continue well into the future. By 2021, the residential population in the downtown is expected to increase by more than 60% from 1996 levels (the most recentupdate of the regional model by the GVRD) to about 100,000. Employment is expected to increase by almost 30% to nearly 175,000. This translates to a significant increase in the number of trips to and from the downtown. By 2021, the number of morning rush hour trips by all modes into the downtown could increase by more than 40% from 1996 levels.

Given the objective of not increasing car capacity into the downtown, the challenge is to determine how the transportation system in the downtown can best accommodate the future increase in transportation demand while maintaining downtown’s economic vitality, residential livability and quality of life.

A wide range of ideas and suggestions have been gathered in the first step of the DTP work program. A sample of the questionnaire and a summary of the results are attached as Appendix A. The results reveal that improved transit service would be the most attractive alternative to the car. A sample of some of the common issues and concerns expressed by travellers using each of the different modes is described below:

… cyclists - the need for dedicated bike facilities (bike lanes or routes);
… pedestrians - create pedestrian friendly areas by placing restrictions on vehicles (eg. reducing speeds, car-free streets, etc.);
… transit Users - Improve transit (increase frequency and comfort, fewer transfers, more routes, lower fares, etc.); and
… car Drivers and passengers - Improve traffic flow (prohibit on-street parking, synchronize traffic lights, separate bicycles and cars, etc.).

Comments from stakeholder groups are summarized in Appendix B. Issues that have generated lively discussion include:

… a third crossing of Burrard Inlet;
… one-way versus two-way streets;
… Granville Mall improvements;
… vehicle access and parking;
… downtown streetcar;
… business viability; and
… bicycle facilities.

In response to the advocacy of a third auto-oriented and transit crossing of Burrard Inlet by some regional and downtown political and business interests, a separate report examiningthe need for including a third crossing in the terms of reference for the Downtown Transportation Plan will be presented to Council shortly.

An initial computer subarea model review of downtown’s transportation network in 2021 reveals that the goal of keeping the number of cars in the downtown to baseline (1996) levels is close to achievable. However, failure to implement proposed regional transportation demand management measures, or to complete the transit improvements contemplated in regional transportation plans, could alter the results significantly. The model indicates that implementation of these demand and supply measures would allow downtown Vancouver to accommodate the morning rush hour increase in trips in 2021 with a 1% decrease in inbound vehicle trips and a 13% increase in outbound vehicle trips. The increase in outbound trips is a result of the projected increase in the number of downtown residents. Failure to build the Richmond rapid transit line, but continued use of B-Line type bus service would result in a 1% increase in inbound rush hour vehicle trips and a 14% increase in outbound trips during the morning rush hour. On the other hand, failure to implement the transportation demand proposals envisioned in TransLink’s Strategic Transportation Plan (eg. bridge tolls, higher fuel taxes and parking charges) could produce a 14% increase in inbound vehicle trips and a 28% increase in outbound trips in the AM peak period. The consequences of various alternatives on downtown as a whole, as well as on specific streets and parts of downtown, will be explored further as the Downtown Transportation Plan is developed.

Ongoing Work
An ICBC sponsored road safety study of the Downtown Transportation Plan study area is nearly complete. The study identifies traffic safety issues and potential modifications to be considered in the Downtown Transportation Plan.

A social and environmental impact assessment model is also being developed to evaluate the impact of transportation changes on the economy, land usefulness, urban design, safety/security, noise, and air quality within the downtown. These in total would be a measure of the quality of street life and pedestrian environment, both of which are vital to the downtown. Consultants are being retained to assist in the development of the model within the next two months.

A working relationship has been established with TransLink in which staff from TransLink will be available to assist in the development of the transit components of the Plan. In addition, we are requesting that TransLink undertake a transit market study of residents inthe downtown, particularly Downtown South. A response from TransLink is expected very shortly. Although TransLink’s participation falls short of the ideal of completing an Area Transit Plan for Downtown Vancouver in conjunction with the development of the Downtown Transportation Plan, it should be adequate given the scarcity of resources currently available at TransLink. As well, TransLink’s proposed Area Transit Plan is generally limited to five years, and therefore would not be sufficient on its own to satisfy the need for additional liaison with TransLink about longer term plans, consistent with the 20 year horizon of the DTP.

Upcoming Events
The following events are pending:
… 2nd newsletter and continued liaison with stakeholders and interest groups;
… issue and community workshops and walkabouts; and
… Council workshop on Intelligent Transportation Systems.

Budget
Approximately 38% ($280,000) of the total Downtown Transportation Plan’s budget of $734,000 was spent as of December 31, 2000. Given 30% completion and the higher than anticipated startup costs, these expenditures are considered to be on budget.

The recommended enhancement to the public consultation process is estimated to cost about $20,000. Funding sources are being explored, including the potential of partnering with outside agencies or groups.

CONCLUSION

The Downtown Transportation Plan is well underway with the initial public consultation effort in gathering ideas and issues completed. Work on the components of the plan is beginning and, with an updated schedule, completion of the Plan is projected in February, 2001.

A review of public input received has identified a need to enhance the planned public consultation process with additional workshops and displays. This additional effort would assist in the formation of an overall consensus at the conclusion of the project, particularly with respect to balancing the needs of commercial access and residential livability.

* * * * *

tt010130.htm

LINK TO APPENDIX A - SURVEY RESULTS

Appendix B: Summary of Stakeholder Comments

Pedestrian/Cyclist Stakeholder Groups (BEST, Vancouver Area Cycling Coalition, Sierra Club)
… Downtown streetcar needs to provide a network of routes to be viable.
… ® More bike racks are required downtown, especially along the Granville Mall.
… Need a bike route on Pacific Boulevard with a good connection to the Burrard Bridge.
… More effort required to deal with use of West End lane ways by rat-runners.

Downtown Vancouver BIA, Entertainment & Retail Committee
… Look at transit/pedestrian malls in other cities, before and after studies.
… Too many vacant buildings/sites along Granville Mall. Interim improvements should be made to keep these locations from becoming unsightly.
… Poor intersection operation at Granville and Smithe - forced left-turn across heavy bus traffic.
… Both support and opposition to the concept of opening the Mall to general traffic were expressed.
… There is a need for a Granville Mall management authority with funding for maintenance and landscaping improvements.
… A report on the state of Granville Mall would be useful (sidewalks, lighting, landscaping, bus stops, etc. Compare with Downtown Eastside monitoring report.) Poor maintenance standards suggest an unsafe environment.
… Low zoned densities along Granville have discouraged development.
… Need a way-finding system downtown.

Downtown Vancouver BIA, Transportation & Parking Committee
… We don't have any notes of comments from this committee as the minutes only record the presentations made by DTP staff, not the comments of committee members.
… Downtown Vancouver Association
… DVBIA can not take a position on introducing traffic to the Granville Mall.
… Improve lighting levels and quality (e.g. white light), sidewalk conditions, street furniture on Granville Mall.
… Need a plan for downtown parking. Reported parking shortage in Yaletown.
… Need a way-finding system for motorists, parking users and pedestrians.
… Strong interest in Third Crossing.
… Reluctance to see Richards Street converted to two-way, more interest in making Homer Street one-way. Mixed opinions on making Water Street two-way.
… Promote Hastings Street as a through-route to discourage traffic through Gastown.
… Interest in streetcar for Granville and Cordova streets.

… Both support and opposition to downtown bike routes was expressed. Potential to move Pender route to Cordova.
… Make Pacific Boulevard more of a local street.
… Focus design efforts on the few downtown streets wider than the standard 66'.

Board of Trade
… Plan must take a regional approach.
… Need to maintain access to downtown to ensure business viability, residential liveability is less of a concern.
… Conditions for pedestrians and cyclists were noted as being poor.
… Trolleybuses supported as being clean and efficient. Need to review routes and other forms of transit. Downtown transit works well, connections outside downtown (e.g. to City Hall) need improvement.
… Streetcar concepts are too oriented to tourists.
… Need to consider that weekend traffic is often more congested than weekday traffic.

West End Residents' Association
… Review bike parking provisions on-street, at schools, and in multi-family buildings.
… Institute a downtown bike lane network.
… Pedestrianise Bute Street between Davie and Robson.
… Installing pedestrian-activated signals on Denman may reduce the pedestrian friendliness of the street. What is the opportunity cost to other improvements?
… Crosswalks need improvement: remove pedestrian holds/right-turn arrows, long waiting times at some intersections, too many motorists fail to yield. Right-turn channel at Burrard/Pacific is a long-standing issue.
… Revise construction standards to make it clear that sidewalk pedestrian traffic has the right-of-way over lane vehicular traffic.
… Calm traffic on Beach Avenue to better reflect its residential/scenic route status.
… Some traffic calming devices are routinely violated and should be retro-fitted to increase compliance. Increase pedestrian priority at traffic circles by adding curb bulges.
… Review need for peak period stopping restrictions.
… Redesign Denman/Davie/Beach/Morton intersection to reduce asphalt and increase green space.

Disclaimer: The points summarised here are based on the comments of individuals as interpreted by City staff. These notes may therefore not reflect the official positions of the groups listed, or the intentions of the individual speakers.

Comments or questions? You can send us email.

[City Homepage] [Get In Touch]

(c) 1998 City of Vancouver