ADMINISTRATIVE REPORT

Date: February 12, 2002
Author: Rod Malkin/604-873-7745

RTS No. 02393

CC File No. 5761

T&T: March 5, 2002

TO:	Standing Committee on Transportation and Traffic
FROM:	General Manager of Engineering Services in consultation with the Director of City Plans
SUBJECT:	Grandview and Skeena - Intersection Safety Improvements

RECOMMENDATIONS

A. That safety improvements including a traffic/pedestrian signal, left turn bays and lowering of the roadway at the intersection of Grandview Highway and Skeena Street as described in this report be approved, at a total cost of $1,150,000, with funding provided as follows: TransLink $400,000, and $750,000 from the Streets Basic Capital Unappropriated Account #30003215 - Grandview and Skeena.

B. That staff monitor traffic volumes on local streets in the neighbourhood south of the intersection of Grandview Highway and Skeena Street, and resurvey the neighbourhood regarding the selected traffic management for the intersection, and report back if necessary.

COUNCIL POLICY

The Transportation Plan provides that intersection improvements 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 the existing roadway width.

Grandview Highway is designated as a part of the regional Major Road Network.

SUMMARY

In order to improve safety and reduce the incidence of motor vehicle crashes, it is proposed to install a new traffic/pedestrian signal and left turn bays, and lower the roadway crest on Grandview Highway at Skeena Street. The results of a public process and survey held in the adjoining neighbourhood indicate residents support this plan; however, many are concerned the changes may encourage non-local traffic short cutting south of the intersection. Half the respondents to the survey favour prohibiting community access at the intersection in order to deal with the concern. The other half wish to retain the existing operation, i.e., no traffic restrictions. In view of the split, no changes to restrict traffic movement are proposed; however, it is recommended staff conduct a community process involving monitoring before/after traffic volumes and conducting a followup survey about 6 months after the installation.

PURPOSE

This report seeks Council approval of a new traffic signal and roadway geometric changes at the subject location, and a followup local traffic monitoring process for the neighbourhood to the south.

BACKGROUND

Grandview Highway is a major City arterial, part of the truck route system and an important component of the regional Major Roadway Network. It provides connections to the Trans Canada Highway in the east, and to destinations in the west including Central Broadway and UBC. Grandview Highway at Skeena Street carries about 50,000 vehicles per day.

The location has been under review by the City, ICBC and the Vancouver Police regarding safety. The intersection averages about 15 reported automobile crashes per year, which is high for this type of non-signalized intersection. As well, because of the severity of the collisions, it is a location the police regularly attend.

PROJECT DESCRIPTION

Proposed changes to improve safety for motorists and pedestrians include:

- Traffic/Pedestrian Signalization

A traffic signal would improve safety and access for local properties and businesses by controlling through and turning movements at the intersection. Pedestrian crossings of Grandview Highway between theresidential area south of the intersection and the businesses north of the intersection (e.g. Costco) would become safer and easier.

- Left Turn Bays

Left turn bays would be installed, as illustrated in Appendix 1. This would have a number of benefits which would improve safety including:

- Better Left Turn Visibility - At present, motorists turning left from Grandview Highway often have difficulty seeing gaps in oncoming traffic through the queue of oncoming vehicles. If left turn bays are installed, these motorists would have a relatively unobstructed view of approaching traffic.

- Separating Left Turning Traffic from Through Traffic -providing left turn bays would eliminate through traffic stopping behind left turning traffic in the east/west travel lanes thus reducing rear end crashes. Problems involving traffic weaving to other lanes in order to pass left turning vehicles would be removed.

- Lower Grandview Highway at Skeena

The roadway would be lowered by up to 0.8 metres (2.6 feet) in order to provide better sight distance over the crest of the hill on Grandview Highway.

Collectively, the above measures will significantly reduce the rate of motor vehicle crashes at this location.

The project also offers the opportunity to enhance the gateway appearance for the Grandview-Boundary Industrial Area and the residential community of Renfrew Heights. The design concept is still being developed and includes beautifying the area with special lamp standards, stamped concrete crosswalks, and scored concrete sidewalks with exposed aggregate banding. This design concept could serve as a standard for streetscape improvements at key points in the remainder of the Grandview-Boundary Industrial Area. Staff will be reporting on this later in the year as part of the Grandview-Boundary Industrial Area Plan. In view of the narrower boulevard on the south side of Grandview Highway west of Skeena, the existing older trees will have to be replaced with smaller trees. The centre median will be landscaped where width permits.

PUBLIC INPUT

A public process was conducted for property owners north and south of Grandview Highway.

Neighbourhood South of Grandview Highway

A letter/survey was sent to about 600 households in the area bounded by Grandview Highway, Boundary Road, 22nd Avenue, and Rupert Street. The letter described the project and invited residents to an open house held on September 26, 2001 at Renfrew Elementary School. There were about 30 attendees at the open house. One hundred and forty three survey responses were received, representing about 24% of the total households.

In general, there was support for the project as a necessary safety treatment. However, there was some concern about the potential infiltration of non-local traffic on residential streets. The survey (see Appendix 2) included two questions regarding potential traffic management measures at the Grandview Highway and Skeena intersection:

1. Should westbound to southbound left turns be permitted?

At present, it is difficult to make this turn because of heavy eastbound volume. With the signal and left turn bay installation, this movement would be safer and easier, and could attract more non-local traffic since turns are not permitted at Boundary Road. To deal with this, the turn could be prohibited; however, this would mean residents would have to take more circuitous routes home via Rupert.

2. Should north/south cross traffic movements be permitted?

There are no restrictions on north/south movements at the intersection at present. The movement is difficult and volumes are very low. The concern is that Costco and other business traffic may use the local streets south of the intersection, rather than the adjacent arterial streets. To deal with this, north/south traffic could be prohibited.

For both questions, the survey results were split almost evenly for and against. Specifically, the results were:

- Allow westbound left turn: 48% yes; 46% no; 6% neutral
- Allow north/south traffic: 48% yes; 43% no; 9% neutral.

Given the close vote and the impact to residents if traffic movement prohibitions were introduced, it is suggested that no changes be implemented at this stage. Rather, it is recommended staff conduct a comprehensive before/after traffic volume monitoring program for the local streets south of the intersection and resurvey the neighbourhood about 6 months after installation. In the interim, a signalized left turn arrow will not be installed for the westbound to southbound turning movements, so left turns will continue to be made in gaps in eastbound traffic. As well, the westbound left turn bay would be marked with paint, rather than constructed with raised islands, so it could be easily removed in future if appropriate.

Residents and Businesses North of Grandview Highway

A letter describing the project and providing an invitation to the open house was sent to residents and businesses north of the intersection. A resident and a business representative attended the meeting. Both appeared to support the project given the safety and access advantages.

CONFORMANCE WITH TRANSPORTATION PLAN

The project is consistent with the City of Vancouver Transportation Plan which recognizes left turn bays may be required to improve safety. The rate of motor vehicle crashes will be much lower after the project is complete. ICBC supports the project as a high priority and plans to contribute significantly towards the cost (see `FUNDING' below).

The Transportation Plan also notes new left turn bays should not increase capacity and wherever possible should be accommodated within the existing road width. Overall, the east/westbound traffic capacity of this section of the Grandview Highway corridor will not change as volumes are regulated by nearby traffic signals at Boundary and at Skeena. The capacity at the intersection itself would decrease because of restrictions imposed by the new signal. The project involves roadway widening in order to accommodate the left turn bays, which can be accomplished within the existing street right-of-way. The only property required is 4 metre by 3 metre corner cut at the northeast corner of the intersection in order to accommodate truck turning movements. This would impose no land use impacts as the property is currently vacant. Existing on-street parking regulations will be retained, including full time parking for residents on the north side of Grandview Highway.

COMPATIBILITY WITH GRANDVIEW-BOUNDARY INDUSTRIAL PLAN

The project is consistent with the land use plans for the Grandview-Boundary Industrial Area to the north. Skeena is the major vehicular entrance to the area for vehicles and trucks, and will remain so in future because of restrictions imposed by the rail line to the north and the surrounding arterial network. The Grandview-Boundary Industrial Area is expected to become more intensively developed in the future and traffic volumes will rise as a result

FUNDING

This project is intended for construction in early 2002, as part of other street restorative work in this sector. The total cost is estimated at $1,150,000. Cost sharing of $400,000 will be received from TransLink. The balance of $750,000 will be obtained from funds previously approved for this project as part of the 2001 Streets Capital Budget. In addition, a commitment for cost sharing of $200,000 is expected shortly from ICBC. This would reduce the City share of the project costs to $550,000.

Further, it is believed that the Costco retail operation to the north is a significant contributor to the congestion and safety situation. The landowner has been approached for a contribution, but declined. The Costco operation is non-conforming to the existing land use. It was authorized by the Board of Variance on the basis that the landowner apply for rezoning. A rezoning application is currently in process and is probably more than a year away from public hearing.

The urgency of implementing these street improvements is such that the General Manager of Engineering services does not consider it prudent to delay them pending rezoning. It is the General Manager of Engineering Services' intention to seek a contribution from the landowner when the preconditions to rezoning are determined by Council.

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NOTE FROM CLERK: Appendices 1 and 2 are not available in electronic form - on file in the Office of the City Clerk.

(c) 1998 City of Vancouver