Date: April 22, 2003
Author: W. Chou
Local: 7913
RTS No.: 03307
CC File No.5761
Meeting date: May 13, 2003

TO:

Standing Committee on Transportation and Traffic

FROM:

General Manager of Engineering Services

SUBJECT:

2003 Traffic Signal Program

 

RECOMMENDATION


COUNCIL POLICY

SUMMARY

Council has approved funding as part of the 2003 - 2005 Streets Capital Plan for the Annual Traffic Signal Program. Funding requests included in this report account for one-third of the money approved in the three year Capital Plan. The 2003 Traffic Signal Program is recommended as follows:

A) Pedestrian-Controlled Signals City ICBC

A1) Denman at Comox $40,000 $15,000
A2) Commercial at Charles $60,000 $15,000
A3) Joyce Street at 29th Avenue $67,000 $15,000
A4) 22nd Avenue at Nootka Street $70,000 $15,000
A5) King Edward at Heather Street $75,000 $15,000
A6) 49th Avenue at Commercial $60,000 $15,000
A7) Commercial at 10th Avenue $30,000 $15,000
A8) 41st Avenue at Vine Street $65,000 $15,000
A9) Renfrew Street at Dundas Street $80,000 -

B) Full Signals

B1) Hemlock at 6th Avenue $75,000 $30,000
B2) Jackson at Prior $65,000 $30,000

C) Special Crosswalks

C1) 29th Avenue at Atlin $35,000 $10,000
C2) Grandview at Woodland $35,000 $10,000

D) Signal Modifications $270,000 $80,000

FUNDING SUMMARY

Total City Funding $1,027,000

Total ICBC Funding $280,000
Total TranLink Funding (Signal Modifications) $150,000

TOTAL 2003 PROGRAM $1,457,000

PURPOSE

This report lists the locations recommended for signal installations or modifications and the reasons for these recommendations.

INTRODUCTION

The City of Vancouver relies on a surface street network to handle its transportation needs. Therefore, pedestrian, cyclist, transit and traffic signals are significant traffic management elements in the safe movement of people and goods. Detailed studies are undertaken each year by staff to determine locations that require new or modified traffic signal controls. Users of the transportation system such as pedestrians, cyclists, transit vehicles, trucks and automobiles are considered in these studies. Many locations are reviewed in this program to provide a comprehensive coverage. Based on this review, a recommended Traffic Signal Program has been prepared.

Council's top transportation priority is pedestrians, and nine of the eleven recommended signals are pedestrian-controlled signals, six of which will assist transit customers. Crossing conditions for school children and seniors will be enhanced at several of the recommended signals. The proposed vehicle signals will address pedestrian and traffic safety needs. Furthermore, two Special Crosswalks are recommended as part of this year's program, as there has been an increased need for improvements to pedestrian facilities throughout the City. This device will assist pedestrians by enhancing pedestrian and driver visibility and awareness at pedestrian crossings.

DISCUSSION

A) Recommended Locations - Pedestrian Signals

Denman and Comox is located in a busy retail area with heavy pedestrian and traffic volumes. During peak periods pedestrians must cross four lanes of through traffic. Currently, there is a marked school crosswalk across Denman as it is a designated route for students of Lord Roberts Elementary. Staff observations showed that motorists are inattentive to pedestrian attempting to cross and pedestrians have to force gaps in traffic. Over the past five years there have been four Police reported vehicle-pedestrian collisions at this intersection. ICBC is willing to contribute $15,000 for a total cost of $55,000 for the signal.

Field studies conducted by staff showed that high volumes of pedestrian crossings at this intersection are generated by Grandview Park and retail stores on both sides of Commercial Drive. Also located nearby is the Britannia Community Centre, and Britannia Elementary and Secondary Schools. The Vancouver Police Department, School Safety Patrol, has identified this location as one of its top priority locations to assist school children. Commercial at Charles is located in the middle of a four block stretch between Grant and Napier Streets where there is no pedestrian or traffic signal to assist pedestrians crossing Commercial. A pedestrian controlled signal is recommended to assist pedestrians crossing at this intersection. ICBC will contribute $15,000 for a total cost of $75,000 for the signal.

This intersection is located just west of Boundary Road, and carries relatively high volumes of traffic on both Joyce Street and 29th Avenue. Motorists coming from Boundary and continuing southbound on Joyce must merge into the centre lane from the curb lane. This movement, in conjunction with the horizontal and vertical curve in the roadway, can reduce motorists' awareness of pedestrians. Last year, staff distributed a letter to the residents in this neighbourhood requesting their feedback regarding a proposal for a traffic signal at this location. Based on the feedback staff received, the majority of residents were not in favour of the traffic signal. However, many residents who responded requested a pedestrian-controlled signal. Staff observations show that the majority of pedestrians crossing here are school children of Bruce Elementary. For these reasons staff recommend a pedestrian signal at this intersection. ICBC will contribute $15,000 for a total cost of $82,000.

22nd at Nootka is located at the south-east corner of the Renfrew Park and Community Centre. During field studies, staff observed a high volume of school students from Nootka Elementary crossing at this intersection. Staff also observed motorists passing on the right to avoid others who had stopped for pedestrians in the crosswalk. Other pedestrian generators include a westbound bus stop, and a convenience store at the intersection. This crossing is also identified by the school safety patrol as one of their top priority locations to assist school children. As part of the signal construction, preemption would be provided for Fire Hall No. 15 to assist fire trucks exiting and entering the building located at the north-east corner of the intersection. ICBC will provide cost-sharing of $15,000 for a total of $85,000 for the signal.

A5) King Edward at Heather Street $75,000

This portion of Heather Street is part of the Heather Bikeway which connects the Off-Broadway and Ridgeway Bikeways. It is the only major street intersection along the Heather Bikeway that does not have a signal to assist cyclists and pedestrians. Heather Street is also in the middle of a five block stretch between Cambie and Oak Streets where there is no pedestrian or traffic signal. There is a median which divides east and westbound traffic, but during peak periods pedestrians must cross four lanes of through traffic, a parking lane and a westbound left-turn bay. This portion of King Edward is also near a crest in the roadway which can limit westbound motorists' visibility of pedestrians in the crosswalk. Staff observations found that motorists generally did not yield to pedestrians attempting to cross at this location. ICBC will contribute $15,000 for a total cost of $90,000 for the signal.

49th Avenue at Commercial is located at the north-east corner of Gordon Park and David Thompson Secondary School. This intersection is highly used by students of David Thompson who drive and walk to school. During the afternoon peak period staff observed a high number of vehicles turning from Commercial onto 49th Avenue. This, in addition to the commuter traffic on 49th Avenue, results in few gaps in traffic for the many pedestrians attempting to cross here. During field studies staff also observed that motorists would pass on the right of other motorists who had stopped for pedestrians in the crosswalk. For these reasons, staff recommend a pedestrian signal at this intersection. ICBC will provide $15,000 for a total cost of $75,000.

This intersection is located one block south of the newly developed Broadway Skytrain Station. Since the completion of the Millennium Skytrain line, staff have observed a significant increase in traffic and pedestrian activity in this area. In addition to transit, other pedestrian generators in the area include retail on both sides of Commercial including a Shoppers Drug Mart, and a Safeway and a medical building one block to the east on 10th Avenue. This portion of 10th Avenue is also part of the future 10th Avenue Bikeway. Within the past five years there have been three Police-reported vehicle-pedestrian collisions at this intersection. ICBC is willing to contribute $15,000 for a total cost of $45,000 for the signal.

41st Avenue at Vine is located in the busy Kerrisdale shopping area with heavy pedestrian and traffic movements. During field studies, staff observed that there is a high volume of turning movements at the intersection. Also, during peak PM periods when traffic was heavy and congested, motorists would stop on the existing marked crosswalk, forcing pedestrians to walk between cars when crossing 41st Avenue. Although there are pedestrian signals at Yew and Balsam, there is still a high demand for pedestrians to cross 41st Avenue at Vine. Within the past five years, there has been one Police-reported vehicle-pedestrian collision at this intersection. For this signal, the total cost is $80,000. ICBC has agreed to contribute $15,000.

Currently, there is a marked crosswalk with overhead signs at this intersection. Field observations conducted during the Pacific National Exhibition showed that there are high pedestrian and traffic movements at this location. Studies during non-PNE times also showed that there is still demand for pedestrians to cross, as other public facilities located in Hastings Park are open year round. The Renfrew and Dundas intersection is located in the middle of an eight block stretch between McGill and Hastings where there is no signal to assist pedestrians crossing Renfrew. Within the past five years there has been one Police-reported vehicle-pedestrian collision at this intersection.

B) Full Signals

B1) Hemlock & 6th Avenue $75,000

Currently, the intersection of Hemlock & 6th Avenue is controlled by a three-way stop. Motorists approaching the intersection on 6th Avenue, and motorists in the southbound direction on Hemlock Street must stop for northbound traffic which has the right-of-way. As northbound motorists approach the intersection, they have the option to continue north on Hemlock or to proceed onto the on-ramp leading to the Granville Bridge. This complex intersection configuration, in conjunction with the three-way stop control, makes it difficult for motorists and pedestrians attempting to cross at this location. In addition, several residential towers have recently been completed and one is currently under construction along 6th Avenue, which will further increase traffic volumes at this intersection. Atraffic signal at Hemlock & 6th would enhance pedestrian and traffic safety by assigning right of way for all approaches and providing motorists on 6th Avenue with more opportunities to cross or turn onto Hemlock. In February of this year, staff distributed a letter to area residents requesting their feedback regarding the proposed traffic signal. Of the residents who responded, the majority were in favour of the proposal. The total cost for the signal is $105,000. ICBC will be contributing $30,000.

B2) Jackson Street & Prior Street $65,000

The development of the National Street Works Yard is currently underway and is expected to be complete this Fall. In order to facilitate access to and from the site, the Development Permit Board, on May 13, 2002, approved the works yard with the understanding that traffic calming measures as well as a traffic signal would be provided at the intersection of Jackson at Prior, subject to Council approval. Staff have initiated a public consultation process regarding traffic calming measures associated with the proposed traffic signal and will be reporting to Council with recommendations of the traffic calming measures, as part of the Works Yard Traffic Mitigation Report. ICBC has agreed to contribute $30,000 for a total cost of $95,000 for this signal.

C) Special Crosswalks $70,000

Special crosswalks help enhance intersections by increasing driver visibility and awareness of pedestrians. This pedestrian crossing device, as shown in Appendix C, consists of the following features: zebra pavement markings, overhead internally-illuminated signs with pedestrian-activated flashing amber beacons, ground mounted signs, advance warning signs and special lighting of the crosswalk area. Evaluation according to the guidelines of the National Pedestrian Crossing Control Manual has identified locations for Special Crosswalks:

ICBC is willing to contribute $20,000 bringing the total cost for the Special Crosswalks to $90,000.

D) Signal Modifications

Existing signals that do not have pedestrian indicators are reviewed each year. It is recommended that funding for up to five suitable locations at an average cost of $8,000 be appropriated for 2003.

The City receives many requests for left-turn flashing arrows at existing traffic signals. They are best suited to intersections with left-turn bays and high left-turn volumes which cannot clear during gaps in opposing traffic flow. The level of service of intersections which already have left-turn signalization can be enhanced by adding detectors in the left-turn bay so the length of the left-turn phase responds to the demand. This program will also benefit transit customers by reducing travel time, and improving the reliability of the affected bus services. TransLink is expected to contribute approximately $150,000 from the Transit Related Road Infrastructure Program (TRRIP) for a total cost of $225,000 for left-turn phasing in 2003.

D3) Audible Signals $35,000

Vancouver has more audible signals than any other Canadian city. Over two hundred and forty locations have been completed as of March 2003. Funding of $35,000 is recommended to install audible signals at existing signals. The priority of installation is established by user requests, land use, and transit availability, in consultation with local advocacy groups, the CNIB, Vancouver School Board and the Special Advisory Committee on Disability Issues.

D4) Signal Modifications $50,000

There are routine modifications required on the present signal system from time to time. Some examples of the modifications are:

- adjustment of signal timings in the local controllers;
- visibility improvements of existing signal equipment by the relocation or addition of signal heads;
- the modification of overhead signs;
- minor modifications to hardware and software for the controllers and Central Control System;
- installation of intersection monitoring and related data transfer equipment; and
- purchase of computer hardware and software to allow staff to better manage the existing signal system, utilize database software to inventory pedestrianand vehicle information, and to handle increasing requests from the public for traffic related data.

D5) Intelligent Transportation Systems $30,000

Intelligent Transportation Systems are the application and use of technology to optimize the effectiveness of the existing street infrastructure. Intelligent Transportation Systems (ITS) provide the technology to enable people to make smart travel choices.

The ITS initiatives integrate well with the Traffic Signal Management System. This centralized system allows for improved signal functionality and data collection capabilities. These capabilities include the downloading of new signal timings to intersections, intersection monitoring, automated vehicle counting capabilities, and providing information to the City's public web page. Funding in this years program will allow for one additional monitoring camera and several automatic counting locations to be installed.

D6) Tertiary Heads $40,000

Since 1994, the City has been cost-sharing with ICBC the upgrade of existing signalized locations for improved signal visibility. These upgrades include the addition of a third or tertiary signal head and have achieved significant reduction of traffic collisions at many high-accident intersections. Throughout the coming year, staff will continue to pursue further support from ICBC. This funding partnership will allow the City to continue to install tertiary signal heads at high volume/high collision intersections. ICBC may contribute up to $80,000. The total cost of the program, at $120,000.

OTHER SIGNAL INSTALLATIONS

Signal installation and modifications may also be initiated through other programs or agencies. Appendix B lists signals which are being reviewed due to private developments and through other projects such as Greenways and Bicycle Routes. Additional reports will be forwarded to Council as the public processes of the Greenways and Bikeway projects are completed.

FINANCIAL IMPLICATIONS

The 2003 Traffic Signal Program, at a cost of $1,027,000, represents approximately one-third of the money approved in the 2003-2005 Streets Capital Plan. It is recommended thatCouncil approve this funding in advance of the 2003 Engineering Basic Capital Budget, submissions A-3a: New Pedestrians and Vehicle Signals, and A-3b: Modifications of Existing Signals. It is important to gain early approval of this program so that materials can be ordered, and work completed in time for upcoming deadlines, such as the opening of school in September.

Future Operating Budgets will be affected by increases in maintenance costs associated with the addition of new signals, signage, road marking, intersection traffic counts, and increased energy consumption. This year's Signal Program represents roughly a one and one-half percent increase in the plant of the Traffic Signal System. For this increase in the City's signal plant and the addition of Special Crosswalks, costs of $20,000 will be incurred in future Operating Budgets. These increases will be subject to budget review in 2004.

* * * * *

 

APPENDIX A

3) 12th Avenue at Trafalgar

4) Robson at Bidwell

5) Denman at Pendrell

6) 4th Avenue at Stephens


7) Main at 20th Avenue

APPENDIX A (Continued)

Further Locations To Be Reviewed In 2002-2003

4th Avenue @ Dunbar
41st Avenue @ Columbia
41st Avenue @ Crown
49th Avenue @ Arlington
49th Avenue @ Yew
54th Avenue @ Killarney
70th Avenue @ Osler
Alma Street @ 6th Avenue
W. Boulevard @ 40th Avenue
Burrard @ 10th Avenue
Cambie @ 65th Avenue
Fraser @ 31st Avenue
Knight @ 43rd Avenue
Main @ 19th Avenue
Main @ 48th Avenue
Marine Drive @ Sophia
McGill @ Slocan
Oak @ 7th Avenue
Thurlow @ Barclay
Venables @ Woodland
Victoria @ Kitchener
Victoria @ 15th Avenue
Victoria @ 10th Avenue

APPENDIX B

Signal Improvements funded through other projects

New signal installations and upgrades to existing signals through Greenways and Bikeways are listed below. The following locations have had signal work completed within the past year or are currently underway. The upgrading of signals refers to one or more of the following:

Inverness & SE Marine New signal underway Inverness Bikeway
Windsor & 12th Avenue Upgrade underway Windsor Bikeway
Windsor & 33rd Avenue New signal underway Windsor Bikeway
Windsor & 41st Avenue Upgrade underway Windsor Bikeway
Windsor & Kingsway Upgrade underway Windsor Bikeway
Broadway & Glen Upgrade underway Windsor Bikeway

The following locations are simply proposed at this time and have yet to go through neighbourhood consultation, the Bicycle Advisory Committee and to be approved by Council.

10th Avenue & Arbutus New signal proposed 10th Avenue Bikeway
10th Avenue & Burrard New signal proposed 10th Avenue Bikeway
10th Avenue & Clark New signal proposed 10th Avenue Bikeway
10th Avenue & Fir New signal proposed 10th Avenue Bikeway
10th Avenue & Hemlock New signal proposed 10th Avenue Bikeway
10th Avenue & Oak New signal proposed 10th Avenue Bikeway
12th Avenue & Trafalgar New signal proposed 10th Avenue Bikeway

Signal Locations to be Funded by Developers

There are locations where, in accordance to the rezoning agreements or as a condition of development approval, signals may be installed at the expense of the developers. These are locations where existing conditions are satisfactory but as a direct result of the developments, future conditions may be affected and signals will be required to accommodate pedestrians and traffic. Future signal locations to be funded by others are as follows:

Hastings at Bute New signal recommended Marathon Developments
Hastings at Thurlow New signal recommended Marathon Developments
Cordova at Thurlow New signal recommended Marathon Developments
Oak Street/10th Avenue New signal recommended VGH development

APPENDIX C

The "Special Crosswalk" pedestrian crossing device consists of the following features: pavement markings, overhead internally-illuminated signs with pedestrian-activated flashing amber beacons, ground mounted signs, advance warning signs and special lighting of the crosswalk area.

Figure 1 - Typical "Special Crosswalk" installation

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