Vancouver City Council

CITY OF VANCOUVER ADMINISTRATIVE REPORT

	Date:	October 21, 2004
	Author:	N.Hood/Leo Megaro
	Phone No.:	604.873.7741
	RTS No.:	4602
	CC File No.:	3155
	Meeting Date:	November 18, 2004

TO:	Standing Committee on City Services and Budgets
FROM:	General Manager of Engineering Services
SUBJECT:	Sidewalk Task Force - Implementation Plan

RECOMMENDATION

THAT Council receive this update on the recommendations provided by the Sidewalk Task Force.

COUNCIL POLICY

The Vancouver Transportation Plan (1997) emphasizes the need to provide more comfortable and convenient pedestrian facilities and environs.

CityPlan (1995) established major directions for transportation policy within the City, including support for a hierarchy of mode priorities identified in a citizen survey with pedestrians first, then cycling, transit, goods movement and vehicles.

The Livable Region Strategic Plan (1995) provided a regional framework for managing growth by increasing transportation choice and building complete communities.

PURPOSE

The Sidewalk Task Force (STF) developed forty-six recommendations to improve the pedestrian environment and support pedestrians as the City's top transportation priority. This report provides a status report on the actions taken by Council and staff to respond to these recommendations

BACKGROUND

In July 2000, Council approved the creation of the STF to examine issues related to the safety, comfort and convenience of pedestrians. The Task Force served as a forum to bring together representatives from community and government agencies, such as, the Canadian National Institute for the Blind, the Vancouver Coastal Health Authority, Translink, two Business Improvement Associations and seniors groups. The Task Force also included private citizens, members of Council and staff from both Engineering and Planning. The Task Force met over an eighteen month period and developed recommendations which Council received for information on June 25, 2002.

This report provides a status report on the implementation of the recommendations including a range of Council policy initiatives as well as changes to administrative, maintenance and design practices. Recommendations requiring ongoing review would be added to the Transportation Plan and monitored with other transportation initiatives.

DISCUSSION

The STF made forty-six recommendations in nine categories ranging from practical considerations like Maintenance and Cleaning to policy issues such as Land Use regulations. The implementation strategy for each recommendation is detailed in Appendix A. The discussion here will highlight existing policies and work programs that are already addressing some recommendations. The discussion will also touch on how the implementation plan will improve safety, comfort and aesthetics in the pedestrian realm along with the costs, staff resources and by-law implications that will result.

Streetscape Design Manual

The manual is intended to be a working document to guide developers, contractors and City crews and staff in implementing streetscape projects. Ten of the forty-six STF recommendations have been fully or partially addressed by the Streetscape Design Manual. These recommendations are: A.1, 4, 5,6,9,12,13 and 14, C.2, and D.1.

The Streetscape Design Manual defines zones on the sidewalk which will govern a more orderly placement of street furniture and clearly establish the pedestrian corridor on the sidewalk. Appendix B provides an illustration of these zones on a neighbourhood commercial street. The three main zones are:

• The Service Zone, located just behind the curb, is the preferred location for all street furniture, trees and other streetscape elements.

• The Pedestrian Zone is that part of the sidewalk which shall be kept clear for pedestrians. No streetscape elements shall reduce the minimum 1.5 m width of the zone.

• The Commercial Use Zone, located between the Pedestrian Zone and the property line, where space is available, may accommodate advertising, merchandise displays and café seating.

The manual also addresses pedestrian comfort and aesthetics through detailed standards on the use of coloured and textured materials, landscaping and street lighting.

Construction and Maintenance Practices

A number of the new construction and maintenance practices recommended in the STF Report have already been adopted. Root barriers are now routinely installed with each new street tree that is planted. The barriers are designed to reduce the frequency and severity of sidewalk heaving due to tree root growth. The use of structural soil to encourage downward root growth and reduce sidewalk heaving is also being explored. Four concrete grinding machines have been purchased and are used to level sidewalks which have heaved, reducing the use of asphalt patches on sidewalks. The cost/benefit of these changes will not be apparent until the practices have been in place for a number of years. These new practices will most importantly improve safety, but will also enhance the appearance of sidewalks.

Landscape design and maintenance has also been improved in the public realm in recent years, both through the addition of landscape designers on staff and the efforts of volunteers in the Greenstreets Program. In addition to citywide and neighbourhood greenways that Greenways develops every year, innovative landscaping is being designed for smaller projects. Examples of these projects include the north west corner of Richards and Pacific Streets and Suzhou Alley. The Greenstreets Program has over 300 volunteers who care for street gardens in traffic circles, corner bulges and other areas in public rights-of-way. The landscaping efforts of both staff and volunteers have resulted in noticeable improvements in the pedestrian realm citywide.

On April 8, 2004, Council established a policy to complete the sidewalk network to include sidewalks on both sides of all blocks based on the following priorities:

i. transit routes
ii. arterial streets
iii. pedestrian collector routes
iv. higher zoned streets
v. local residential streets

Council further established a policy to complete sidewalks on all transit routes by 2007 to coincide with Translink’s schedule to offer wheelchair accessible service on all routes, and on both sides of all developed arterial streets by 2009 in advance of the 2010 Winter Olympics and Paralympics.

A review of the sidewalk cost-sharing formulae and the program for accelerating sidewalk construction was completed and Council approval was given to increase sidewalk funding. The option to reallocate funds from within the Capital Plan from residential streets and lanes will accelerate the completion of the sidewalk network in the City.

Curb ramp installation and replacement has been an ongoing program in Streets Administration since the mid 1970's, with an annual budget of $500,000 per year. At the current rate of funding, it is anticipated installation of ramps in the downtown core will be largely completed by 2005. Ramps are being installed at priority locations throughout the City. The construction of curb ramps in the downtown peninsula is being coordinated with the Downtown Transportation Plan objectives. Staff are preparing a long range plan for accessibility in the City as part of the Capital Plan process that will set out goals and objectives for this program.

By-law Implications

Recommendations D.2, 3, 4 & 5 seek to address pedestrian safety issues and they can best be implemented through increased public education and/or enforcement of existing by-laws. The Bicycle Advisory Committee has recommended that enforcement of cyclists on sidewalks (D.5) be targeted at reckless behaviour and that the emphasis be on education and encouragement. Staff agree with this focus. The Bicycle Advisory Committee does not support Recommendation D.4 requiring couriers to agree contractually not to ride on sidewalks, recommending further consultation with interested parties instead. As an alternative to a contract, licensing staff currently provide bike couriers with a study guide outlining their responsibility to comply with City by-laws. Enforcement is done on a case by case basis, and the Chief License Inspector has the ability to revoke or suspend a bicycle courier license. If bicycle couriers on sidewalks create undue hazards for pedestrians, consultation with the industry can be considered. Several other recommendations, to manage encroachments and establish pedestrian corridor widths, will be addressed through by-law reviews, including C.2, 3 & 4 and F.4.

A report recommending changes to C-2 zoning was enacted by Council in December of 2003. Among the changes approved is that the ground floor of new buildings must be set back two feet from the property lines along streets. This has the effect of widening the sidewalk and will allow for some commercial uses, which now occur on public lands, to occur entirely on private property. Small sidewalk cafes, merchandise displays and sandwich board signs will continue to enliven the streetscape, but a wider corridor on the sidewalk will be left clear for pedestrian travel.

Staff will be reviewing the by-laws regulating the use of sidewalks for commercial gain and a report to Council is expected in 2005. This review will seek to: consolidate all by-laws governing the commercial use of sidewalks into a single by-law, ensure that regulations for all programs are equitable, create regulations consistent with the Streetscape Design Manual and provide for fair compensation to be paid to the City for the use of public space.

In order to ensure that compensation paid to the City is fair both to the City and the affected business, the General Manager of Engineering Services will be reporting on the feasibility of two new permit programs, for sandwich board signs and merchandise displays, for Council's review.

Sandwich board signs and merchandise displays have a well established presence on City sidewalks, but have not been subject to permit fees which are required for sidewalk cafes and produce and flower displays. Although there is no official permit program in place, staff time is still required to manage the presence of these retail encroachments on City property. Staff must explain the by-laws when concerns are raised and provide enforcement to ensure that sidewalks are safe and passable. The establishment of new permit programs may provide improved administrative tools to control these commercial encroachments and ensure the associated administrative costs are being borne fairly by the relevant businesses.

FINANCIAL IMPLICATIONS

The implementation of the STF recommendations, as outlined in this report, will not require additional resources. However, new practices and procedures identified in the various reviews called for in this report will, in many cases, identify either a reallocation of existing budgets to new priorities or will identify the need for additional funds for new initiatives. Council will have the opportunity to consider the financial implications of changing priorities and new programs when those reports are brought forward.

CONCLUSION

The Sidewalk Task Force Report provides a comprehensive look at issues affecting sidewalk infrastructure and uses. Staff have been working on follow-up to the Sidewalk Task Force recommendations since the report was finalized in 2002. Good progress has been made and many action items have been implemented. The focus of the recommendations on policies and practices, as opposed to site specific projects, will ensure a coordinated effort among City staff towards clearly defined goals. All policy reviews and new work practices are expected to be complete or underway by the end of 2004. This coordinated effort should bring about noticeable change in many areas of the pedestrian realm.

* * * * *

Appendix A

Sidewalk Task Force Implementation Strategy

A. DESIGN AND INSTALLATION STANDARDS

Recommendation	Action
A.1 Make increased use of textures, paving materials, contrasting colour and landscaping as options to distinguish the pedestrian corridor from the service and commercial use corridors and for giving pedestrians cues for where to walk. Innovative sidewalk design solutions should be encouraged and implemented.	The Streetscape Design Manual addresses the use of different textures and colours in sidewalk construction, as do individual public realm treatment plans. Staff involved in the development review process will continue to look for opportunities to enhance sidewalk construction. However, higher levels of treatment will result in increased maintenance costs which will be addressed through report backs on individual projects.
A.2 Install curb ramps at all intersections, designed in accordance with current best-practice standards.	Curb ramp installation is an ongoing work program that sees approximately 300 new or retrofitted curb ramps completed each year. In 2004, staff undertook a detailed review and confirmed the City’s current curb ramp design standards with input from the CNIB, BC Paraplegic Association and Advisory Committee on Disability Issues. Efforts have been made internally to promote awareness and understanding of the curb ramp standards among staff. Staff are working on a long range accessibility plan to establish goals and objectives for this program.
A.3 Develop design standards for sidewalks that vary based upon pedestrian function and volume.	The General Manager of Engineering Services will establish minimum pedestrian corridor widths, based on pedestrian volumes, to be used in evaluating applications for sidewalk uses. The 2001-2002 Pedestrian Study provides a good starting point for this review. Pedestrian counts are planned for every five years, ensuring that current pedestrian volumes will be available when establishing pedestrian corridor widths.

Recommendation	Action
A.4 Ensure minimum pedestrian corridor clearances on all sidewalks, consistent with the City’s draft Streetscape Design Standards.	The General Manager of Engineering Services will continue to review sidewalk programs to ensure that minimum pedestrian corridor widths to meet pedestrian demands are maintained for all programs, including: street furniture, street activities, street amenities, utility placements, etc. This could include increasing pedestrian corridor widths in high volume areas or increasing encroachment opportunities in low volume areas.
A.5 Ensure that future sidewalk and bus stop designs provide sufficient space to allow adequate waiting at bus stops without disrupting the flow of pedestrians.	The Street Furniture Program provides options for bus shelter designs to meet pedestrian corridor needs in areas where there is limited sidewalk width or high pedestrian volumes.
A.6 Ensure that pedestrian corridors are well connected through public and private shortcut connections, where demand is demonstrated.	The General Manager of Engineering Services and the Directors of Planning will continue to identify pedestrian connections/shortcuts through private development sites which enhance the pedestrian connectivity and develop them as part of greenways and private site developments.
A.7 Undertake a cost-benefit analysis of sidewalk capital construction costs versus long term operations and maintenance expenditures.	The General Manager of Engineering Services will continue to review engineering practices to ensure that there is a balance between sidewalk infrastructure costs and pedestrian benefits. In addition, an analysis of infrastructure funding is included in the Capital Plan Process every three years.
A.8 Review current cost-sharing practices for new and replacement sidewalk installations. Consider alternative cost-sharing formulae other than the current 50/50 ratio between the City and property owners, to ensure that timely installations and replacements occur.	In April 2004, Council approved a reduction in the property owner share for new sidewalks to 20% and increased the share for street and lane improvements. Council also approved a recommendation that existing sidewalks be reconstructed at Council’s discretion outside the Local Improvement Process at City cost.

Recommendation	Action
A.9 Continue the work between Parks board and Engineering Services to identify appropriate species of trees, planting standards and procedures for the inspection of tree planting to ensure that trees are planted in ways that minimize ongoing damage to sidewalks.	Work is ongoing between Engineering Services and Parks, with input from Planning, to research and implement, where feasible and budgets allow, methods and processes to minimize the impact of trees and tree roots on sidewalk infrastructure while maintaining a healthy urban forest. This work has resulted in the Street Tree Guidelines which details: species selection, use of root barriers, structural soil, tree placement, sidewalk location, etc.
A.10 Install new root barriers wherever necessary when constructing or repairing sidewalks to minimize damage from tree roots. If root barriers cannot be installed, evaluate other options such as alternative landscape material.	The use of tree root barriers has been standard practice for new sidewalk construction since 2001. Where tree root barriers are not feasible, the Street Tree Guidelines provide staff with other options to consider.
A.11 Be more creative and innovative in designing green spaces in sidewalks (e.g. planters, groups of shrubs, single specimen trees).	The General Manager of Engineering Services will continue to support innovative, practical and cost effective landscape design on streets to enhance green space as opportunities emerge. The Greenways Branch has been assigned this task. Greenways’ mandate is to improve the pedestrian experience and this initiative is in keeping with the Greenways Program. As well, landscaping on private land is reviewed through the development permit process and is encouraged and often required.
A.12 Adopt a coordinated and modular street furniture program. It will supply appropriate types of amenities in which a contractor both installs and maintains the City’s street furniture.	Council approved a Street Furniture program in July, 2002. Installation of the new street furniture began in June, 2003 and is ongoing.

Recommendation	Action
A.13 Size and locate all street furniture and amenities appropriately in defined corridors at curbside or adjacent to buildings, or in corner and mid-block bulges, consistent with the City’s draft Streetscape Design Manual.	The Streetscape Design Manual addresses these issues and will guide the ongoing work of the Street Furniture Program and the ongoing administration of existing Street Activity programs.
A.14 Change street lighting practices to benefit pedestrians, not just vehicles.	The General Manager of Engineering Services will continue to review street lighting practices relative to pedestrians and, in consultation with communities and businesses, will report back on initiatives that would improve the pedestrian experience.

B. MAINTENANCE AND CLEANING STANDARDS

Recommendation

Action

B.1 Eliminate the use of black asphalt fillets as a long-term sidewalk repair method.

In the fall of 2002, the City purchased four concrete grinding machines to level sidewalks with heaves of less than one and one half inches. This new practice has resulted in the removal of over 2000 asphalt patches. However, there are many places where sidewalk heaving is so severe that replacement is required and asphalt patches will continue to be necessary in these circumstances. Where heaving is this severe, entire block faces of sidewalk often need to be replaced at a cost of $25,000-$75,000, depending on the width, length and special surface treatments of the sidewalk. Projects will be identified within the available funding.

Recommendation	Action
B.2 Improve the cleanliness of the pedestrian environment through new sidewalk cleaning standards and the cleaning of adjacent roads and gutters.	Currently only sidewalks along the Granville Mall and Gastown are swept mechanically. All City sidewalks in the downtown core are cleaned manually by Hand Cart personnel on dayshift five times per week. In addition Motor Cart personnel on nightshift manually clean the downtown sidewalks seven times per week. Litter receptacles are emptied seven nights per week in the downtown and five times per week in the suburbs. In addition new more functional, litter receptacles are being manufactured to replace the existing ones on City sidewalks. As well, the number of litter receptacles is being increased by 50% from about 800 to 1,200. Downtown roadways are mechanically swept two times per week. Suburban arterial streets are swept every other week and residential streets are swept three times per year. Staff is currently reviewing the existing street cleaning program.
B.3 Examine options for providing differing cleaning and maintenance standards for residential and commercial sidewalks.	Traditionally, residential sidewalk and boulevard maintenance has been left to the responsibility of the adjacent property owner and this practice has proven adequate over the years. Commercial sidewalk cleaning has been detailed above.
B.4 Develop policies and practices on standards of maintenance of sidewalks and street furniture. Regularly reassess and compare these standards with “best practices” used by other cities.	The Street Furniture contract details maintenance requirements for the program currently being implemented. Sidewalk cleaning is addressed in B2 and B3.

C. STATIONARY ENCROACHMENTS

Recommendation	Action
C.1 Develop guidelines for establishing the pedestrian capacity of sidewalks.	The General Manager of Engineering Services will use principles in the Transportation Research Board’s “Highway Capacity Manual” to develop guidelines for sidewalk width and capacity based on pedestrian volumes, street type and the demand for commercial encroachments.
C.2 Adopt a sidewalk encroachment policy that permits private encroachments only if there will be sufficient capacity for pedestrians in the remaining public space.	The minimum 1.5 m (5') pedestrian corridor established in the Streetscape Design Manual will be a guideline that is followed when reviewing commercial encroachments onto the sidewalk. In higher pedestrian volume areas, a wider corridor may be required.
C.3 Prohibit freestanding advertising signs (e.g. sandwich boards) within the pedestrian corridor, but permit them elsewhere. Amend the Street & Traffic Bylaw to reflect these rules.	The General Manager of Engineering Services will report back on options to manage sandwich board and business identification signage encroaching onto the sidewalk. Although prohibited under by-law, the signs are tolerated by both the City and the public in most circumstances. The report will be prepared in consultation with Planning to ensure that by-laws governing signs on public and private land are compatible.
C.4 Collect fees for freestanding advertising signs in the same manner as fees are collected for other commercial encroachments, with revenues going toward management of sidewalk space and enforcement.	One option of the above noted report will be the assessment of a permit fee for all signs on City property.
C.5 Examine the viability of sidewalk cafes at the curbside.	There are limited opportunities for café seating at the curbside because of existing street furniture (parking meters, bus shelters, street lights, mailboxes etc.) and the passenger and goods loading that occurs at the curbside. However, staff will look for opportunities to establish animate street uses, such as public or private seating and street entertainment, at the curbside.

D. ANIMATE SIDEWALK USES

Recommendation	Action
D.1 Designate a minimum 5-foot (1.5 meter) wide pedestrian corridor for pedestrians “on the move” on all sidewalks, consistent with the City’s draft Streetscape Design Manual. All other uses should take place in the service corridor or the commercial use corridor adjacent to the building.	The Streetscape Design Manual identifies a 1.5 m (5') minimum pedestrian corridor which will be applied when sidewalk uses are being considered.
D.2 Review the Street & Traffic Bylaw to determine whether the bylaw deals sufficiently with speed limits and other safety issues related to use of sidewalks by permitted devices (e.g. motorized wheelchairs).	Motorized wheelchairs and scooters are not required to have speedometers and, as such, a by-law regulating speeds would not be enforceable. The General Manager of Engineering Services will continue to seek ways to improve the safe use of sidewalks, including by-law and policy reviews and public safety campaigns.
D.3 Amend the Street & Traffic bylaw to prohibit tethering of animals in any way that the animal or the tether obstructs pedestrian traffic.	The Street and Traffic By-law currently addresses the tethering of animals.
D.4 Require couriers, as a condition of their licence, to sign a contract stating that their cyclists must dismount and not ride on City sidewalks, except in locations where cycling is permitted.	A study guide provided to bike courier’s states that it is their responsibility to comply with all bylaws of the City and noncompliance is deemed to be a breach of conditions. The Chief License Inspector has the authority to revoke or suspend a bike courier license.
D.5 Enforce prohibition of mounted cyclists on sidewalks.	The Chief Constable has been requested to increase enforcement of by-laws prohibiting cycling on sidewalks. Due to resource issues, this matter has not been targeted specifically, but is enforced on a case by case basis. Emphasis will be placed on education and encouragement.
D.6 Pursue additional opportunities for bicycle parking in areas which are outside of pedestrian corridors.	The Street Furniture Program will see increased installation and availability of bicycle racks on City sidewalks. Bicycle racks are typically installed at the curb, outside of the pedestrian corridor, and this will continue to be the practice. In addition, bicycle facilities on private land are reviewed through the development permit process. The Bicycle Advisory Committee supports this recommendation.

E. LAND USE REGULATIONS

Recommendation	Action
E.1 Review regulations for new building setbacks to ensure that they reflect the priority of public space and the pedestrian, taking into account requirements of the current and future public transit system.	In December of 2003 Council approved changes for C-2 districts so that the ground level of new buildings will be set back two feet from the property lines along streets.
E.2 Review weather protection policy and increase the areas where canopies are required to all commercial developments in the city.	Zoning regulations and guidelines currently require canopies in most commercially zoned areas.

F. CIVIC MANAGEMENT AND STEWARDSHIP

Recommendation	Action
F.1 Establish a single point of contact at City Hall for all issues regarding sidewalks.	There are many diverse areas of interest and concern to pedestrians and a single point of contact may not be workable. Engineering Services will review the contact and information resources for pedestrian issues at City Hall and seek ways to streamline the process, such as, adding a pedestrian page to the City's website, updating Quickfind and producing a pedestrian information pamphlet.
F.2 Develop and prioritize an inventory of all streets without sidewalks, and implement a program to complete sidewalk construction within a defined time frame.	On April 8, 2004, Council approved the following recommendations: -Establish policy which envisions a sidewalk network to include sidewalks on both sides of all blocks. -Establish priorities for completion of this sidewalk network based on sidewalk classifications which include transit, arterial, pedestrian collector, higher zoned and local residential routes. -Expedite completion of sidewalks on all transit routes by 2007 and on all arterial streets by 2009.

Recommendation	Action
F.3 Identify sidewalk construction funds as a separate category in the City’s Capital plan.	Sidewalk Capital Funding will be clearly identified in the next Capital Plan so it is easily visible to all.
F.4 Standardize policy on compensation paid to the City for use of public space for private benefit. If any additional revenues accrue to the City from implementing such standard rates, they should be used to enhance and beautify sidewalks and on additional enforcement.	The General Manager of Engineering Services, in consultation with the Director of Finance, periodically reviews the Street Vending By-law fees to ensure they are appropriate and consistent and will continue to do so.
F.5 Improve coordination of construction and maintenance projects in the city to avoid damaging recently constructed sidewalk facilities, and to inform the public about construction plans.	The coordination of construction among the many utilities and other street users is complex. The Road Ahead program, created in 2000, continues to improve public notification of City construction projects. Staff in Sewers, Water, Transportation and Streets is currently reviewing the project coordination and delivery process to improve the program. Staff are working with the outside utility companies to create a committee to streamline processes and ensure all potential impacts on construction are considered and factored into the project implementation plans. Consideration is being given to implementing a penalty for utilities and others that damage newly completed street works.

G. PUBLIC EDUCATION

Recommendation	Action
G.1 Encourage all property owners to care for adjacent sidewalks and boulevards, including ensuring barrier-free access for pedestrians.	Engineering Services and Corporate Communications will be developing a coordinated education plan on a range of engineering issues.
G.2 Increase publicity of City contact numbers and the website address for reporting sidewalk maintenance requests.	See G.1
G.3 Implement publicity programs to encourage cyclists not to ride on sidewalks.	See G.1
G.4 Strive to better educate the public on City sidewalk policies and bylaws.	See G.1

H. PARTNERSHIPS, VOLUNTEER PROGRAMS AND COMMUNITY INVOLVEMENT

Recommendation	Action
H.1 Investigate corporate partnerships as means to generate enhancements for sidewalks.	Corporate investment in sidewalk enhancements most often occurs at the time of redevelopment and staff will continue to look for opportunities as part of the development review process.
H.2 Pursue opportunities such as “ Adopt a Walk” With citizens and local businesses to take joint responsibility for specific sidewalks.	The General Manager of Engineering Services will continue to look for ways in which the public can take greater ownership of their sidewalks, in addition to existing programs, such as, Greenstreets and the Graffiti Removal Program.

I. IMPLEMENTATION

Link to Appendix B

APPENDIX C

Sidewalk Task Force (STF) Links to
Downtown Transportation Plan (DTP) and Transportation Plan (TP)

STF Recommendations	DTP Link	TP Link
A.2 Curb Ramps	PD 2, PD 5
A.6 Pedestrian Shortcuts/Connections	PD 17
D.6 Bicycle Parking	BK 4	C6
E.1 Building Setbacks	PD 19	NP4
E.2 Weather Protection	PD 10	NP8
G.3 Publicity/Education Campaigns	BK 4	C7

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