CITY OF VANCOUVER

ADMINISTRATIVE REPORT

 

Date:

November 3, 2004

 

Author:

Sara McKittrick

 

Phone No.:

604-871-6445

 

RTS No.:

01781

 

CC File No.:

5757

 

Meeting Date:

November 30, 2004

TO:

Standing Committee on Transportation and Traffic

FROM:

General Manager of Engineering Services

SUBJECT:

Traffic Calming Plan for Fairview Heights

RECOMMENDATION

A. THAT Council approve the Fairview Heights "modified" traffic calming plan as described in this report.

B. THAT the total costs of the closure of 2800 block of Willow Street be borne by the Vancouver Coastal Health and Authority; further, that 75% ($82,500) of the remaining traffic calming measures, estimated at $110,000, be recovered from the Vancouver Coastal Health Authority and the remaining 25% ($27,500) be allocated from Streets Basic Capital Unappropriated Account for Local Area Traffic Improvement (SCA5A-UNAP).

C. THAT the Willow Street closure be installed on a trial basis for a period of no less than six months and traffic monitoring be undertaken to ensure there is not an unacceptable transfer of traffic.

D. THAT following the trial period, a follow-up survey be conducted with the affected residents to determine whether the Willow Street closure should be installed on a permanent basis and whether modifications to the plan are required.

E. THAT the Traffic Operations Budget for Signage be increased by $600, without offset and subject to 2006 Budget Review, for the maintenance of the new traffic measures, commencing in 2006.

COUNCIL POLICY

PURPOSE

The purpose of this report is to seek Council's approval to implement the Fairview Heights "modified" traffic calming plan, as described in this report.

BACKGROUND

On December 6, 2001, at a Public Hearing, Vancouver City Council approved the CD-1 text amendment to the Vancouver General Hospital (VGH) precinct. Enactment of this amendment was subject to a number of conditions including the proponent agreeing to fund traffic calming improvements to the area bounded by West 12th Avenue to the north, West 16th Avenue to the south, Oak Street to the west and Cambie Street to the east. Timing for these improvements was tied to certain redevelopment in the VGH precinct. Language in the agreement between the City and the Vancouver Coastal Health Authority requires that Council approve the planned traffic calming work prior to seeking funding triggered by redevelopment of the property at the SW corner of Willow Street and West 12th Avenue.

Tied to these traffic calming measures is the closure of the 2800 block of Willow Street (Willow between 12th and 13th). This closure will enhance the VGH Open Space plan and allow the "wellness walk" to extend in the Willow Street alignment to West 13th Avenue. At the time of the 2001 text amendment Council approved a condition related to design development of this walk as part of the VGH open space plan. A second condition pertaining to the Services and Open Space required the closure of Willow Street between West 12th and 13th Avenue subject to future Council approval. All costs related to the design and construction of this closure will be borne by VGH as outlined in the Services and Open Space Agreement between the Vancouver Coastal Health Authority and the City of Vancouver.

In 2000 City Staff held an Open House to deal with redevelopments and traffic concerns in the neighbourhood. Based on comments received at the Open House and further meetings with concerned residents, City Staff with Bunt and Associates, (VGH transportation consultants) developed two traffic calming plans. A "diversionary" traffic calming plan included the Willow Street closure plus diversionary measures on other streets to ensure traffic would not be diverted from Willow Street to adjoining streets. While dealing with the traffic travelling through the neighbourhood, this "diversionary" traffic calming plan results in more circuitous routings for residents accessing their houses and emergency access delays.

To maintain access, a "non-diversionary" traffic calming plan was also developed with such measures as traffic circles.

On March 31, 2004, Bunting Coady Architects on behalf of the Vancouver Coastal Health Authority applied for a development permit for an energy centre on a site on the south side of 12th Avenue abutting (west of) Willow Street. The energy centre is a change in use and a change in phasing from the plans for VGH development considered by Council in 2001. This application triggers the need for an approved traffic calming plan for the neighbourhood.

In June of 2004, an information package describing the two traffic calming plans was sent out to residents within Fairview Heights (shown in Appendix A). Included in the package was a survey for residents to complete and an invitation to an Open House on June 22nd, 2004.

NEIGHBOURHOOD TRAFFIC PATTERNS

The neighbourhood of Fairview Heights is defined as the area south of West 12th Avenue, north of West 16th Avenue, east of Oak Street, and west of Cambie Street. There are several recognised short-cutting routes within the neighbourhood. These were identified through traffic counts, license plate surveys and feedback from local residents.

Heather Street
Heather Street is the only north/south street that extends the whole way through the neighbourhood north of West 12th Avenue and south of West 16th Avenue. For this reason traffic wishing to travel north or southbound through the neighbourhood will choose this route. Traffic counts from 2000 show average daily traffic (ADT) volumes of 3800 - 4300 vehicles per day on the 4 blocks of Heather Street within Fairview Heights. These volumes are high. Ecole St. Sacrement Elementary School is located on the 3000 block of Heather Street. Speeding occurs adjacent to the school (85% of vehicles travel 45 km/h in this 30 km/hr speed zone).

Laurel Street
Laurel Street runs one block east and parallel to Oak Street. Within the neighbourhood it carries the second highest volume with an ADT of 3900 vehicles per day. Vehicles trying to avoid Oak Street shift one block east over to Laurel Street. The morning and afternoon peak volumes show northbound trends in the a.m. and southbound trends in the p.m.

Ash Street
The 2800 block of Ash Street (south of West 12th Avenue) is used in several short-cutting routes. In 2000, the ADT volume in this block was 3400 vehicles per day. Some of the short-cutting routes include:

13th Avenue
Similarly to Heather Street, West 13th Avenue is the only east/west street that extends the whole way through the neighbourhood in a straight alignment. Vehicles avoiding West 12th Avenue congestion shift to West 13th Avenue. The ADT in 2000 along West 13th Avenue was approximately 900 vehicles per day. Although this volume is reasonable, residents have complained about more traffic on this street, that has two travel lanes (appears wide), compared to West 14th Avenue which has one travel lane between parking on both sides of the street (appears more narrow).

TRAFFIC PLAN ELEMENTS

A "diversionary" traffic calming plan and a "non-diversionary" traffic calming plan were created to deal with the traffic concerns in the neighbourhood. A description of the two plans is located in the following text. Note that all traffic calming devices would be designed to be permeable by bicyclists and emergency vehicles.

Diversionary Traffic Calming Plan Components

The components that are a part of the "diversionary" traffic calming plan are explained below, while the whole plan is shown in Figure 1.

The cost for this "diversionary plan" is estimated at $130,000.

Non-Diversionary Traffic Calming Plan Components

The components that are a part of the "non-diversionary" traffic calming plan are explained below, while the whole plan is shown in Figure 2.

The cost of this "non-diversionary" plan is $163,000.

TRIAL/MONITORING PERIOD

If approved, any diversionary traffic calming measure such as the closure of Willow Street, the right-in/right-out diverters and the diagonal diverter would be installed on a temporary basis for a period of no less than six months. During this trial period volumes and speeds of vehicles in the neighbourhood would be monitored. After the trial period, traffic counts would be conducted and the neighbourhood would be re-surveyed to obtain feedback. If the feedback shows that the neighbourhood supports the measures, they would be installed on a permanent basis.

NEIGHBOURHOOD CONSULTATION

In June of 2004, approximately 2630 packages, including letters and surveys, were sent out to residents of the neighbourhood. In the letter there was an invitation to an Open House on June 22nd, 2004 as well as a description of the two traffic calming plans, "diversionary" and "non-diversionary". See Appendix A for the package sent out. Results and comments from the surveys are included in Appendix B and C. The response rate for the survey was 9%, and comments from the surveys indicated that all respondents, except three (1.3%), approve of traffic calming in their neighbourhood. Support for the two proposed plans is split evenly with 44% supporting the "diversionary" plan, 45% supporting the "non-diversionary" plan, 6% neutral and 5% other. The 6% for neutral were supporting traffic calming in the neighbourhood but did not have a preference to which plan was implemented over the other. The 5% for "other" were people that did not like either plan and wanted a modified plan or did not feel traffic calming was necessary.

DISCUSSION

Through the public consultation process it was found that over 99% of the residents that responded to the survey felt there was a need for traffic calming in their neighbourhood. There was only a small portion of respondents that felt that traffic volumes and speeds were not a problem in the neighbourhood. The support for the two traffic calming plans was split evenly between "diversionary", 44% and "non-diversionary", 45%. Some of the residents felt that the "diversionary" plan affected the access to their homes too much, while others felt that the "non-diversionary" plan would not sufficiently calm the traffic through the neighbourhood. Given this division in the community between the two plans, staff have developed a compromise plan that includes elements of both alternatives.

The closure of the 2800 block Willow Street is an important Civic benefit that will enhance the VGH Open Space plan and allow the "wellness walk" to extend in the Willow Street alignment to West 13th Avenue. In combination with that, there are two proposed developments on either side of the 2800 block of Willow Street that both have green space abutting the street right of way. The closure of this block and creation of a "wellness walk" will provide a link between these green spaces.

Staff recommend that:

These recommendations are based on the following reasons:

With the "modified" traffic calming plan the neighbourhood receives the benefit of the "wellness walk" and traffic speeds will be controlled while maintaining access but volumes may not be appreciably affected.

Modified Traffic Calming Plan Components

The following components make up the "modified" traffic calming plan. The whole plan is shown in Figure 3. This plan will combine the closure of the 2800 block of Willow Street and non-diversionary measures to lower vehicle speeds while maintaining the access in the neighbourhood. The measures and their purpose were previously explained in this report.

PARK BOARD STAFF COMMENT

The closure of the 2800 block of Willow Street as proposed in this report is a first and very important step in the creation of a network of major public open spaces, as envisioned in the rezoning of the Vancouver General Hospital precinct approved by Council in November 2002. The trial closure of Willow Street between 12th and 13th Avenues and related measures will allow for neighbourhood traffic patterns to adjust such that a permanent closure is possible in the future. The long term objective is to close this portion of Willow Street to vehicular traffic and develop a greenway/wellness walkway, thus connecting the future large open space around the restored Heather Pavilion with the residential neighbourhood to the south, and also connecting the public open space on the site of the proposed energy centre with the public open space on the site of the Nurses Residence.

Park Board staff support the recommendations in this report as a key initiative towards realizing a public open space concept that has been subject of a lengthy public planning process, and that has been eagerly awaited by the neighbourhood since the first respective legal agreement was signed fifteen years ago.

RECOMMENDED TRAFFIC CALMING PLAN

For reasons laid out in the Discussion, City Staff are recommending that the "modified" traffic calming plan be approved by Council.

FINANCIAL IMPLICATIONS

The estimated cost for the "modified" traffic calming plan is $110,000 excluding Willow Street closure for which the Vancouver Coastal Health Authority (VCHA) is responsible for 100% of the costs. As per the agreed upon rezoning conditions for VGH, 75% ($82,500) of the total cost for the traffic calming measures will be funded by the VCHA. It is proposed that the remaining $27,500 be allocated from the Streets Basic Capital Unappropriated account for Local Area Traffic Improvement SCA5A-UNAP. All costs associated with the closure of the 2800 block of Willow Street will be borne by the Vancouver Coastal Heath Authority.

There should also be an increase to the Traffic Operating Budget for Signage by $600, without offset and subject to 2006 Budget Review, for the maintenance of the new traffic measures, commencing in 2006.

CONCLUSION

It is recommended that Council approve the Fairview Heights "modified" traffic calming plan as described in this report, based on the Council Policy to pursue a Willow Street closure to extend the "wellness walk" to West 13th Avenue, the benefits to the neighbourhood and the strong support for neighbourhood traffic calming from the affected neighbourhood residents. The recommended Willow Street closure would be installed on a trial basis for a period of no less than six months and traffic monitoring would be undertaken to ensure there is not an unacceptable transfer of traffic. Following the trial period, a follow-up survey would be conducted with the affected residents to determine whether the Willow Street closure should be installed on a permanent basis and whether modifications to the plan are required.

* * * *

 

APPENDIX A
PAGE 1 OF 4

CITY OF VANCOUVER
ENGINEERING SERVICES
D.H. Rudberg, General Manager
T.R. Timm, P.Eng., Deputy City Manager

May 19, 2004

Dear Resident:

This survey seeks your opinion about proposed traffic calming for your neighbourhood.

Through to 2001, Neighbourhood Transportation staff worked with members of the community and Vancouver General Hospital's (VGH) transportation consultants to develop traffic calming options for the area south of 12th Avenue, north of 16th Avenue, east of Oak Street and west of Cambie Street. Two traffic calming plans were developed: one non-diversionary plan and one diversionary plan including the closure of Willow Street between 12th and 13th Avenues.

A condition of the VGH rezoning enacted by Council on November 7, 2002, required VGH to enter into agreements which obligates them to pay for the traffic calming measures in the area south of 12th Avenue. Residents do not pay for these traffic calming measures. Redevelopment of the site located at the southwest corner of Willow Street and 12th Avenue is creating an opportunity for the traffic calming plans to be implemented.

The two proposed traffic calming plans are enclosed with this letter. Please take the time to review these two plans and complete the enclosed survey. Descriptions of traffic calming measures are attached to this letter.

The non-diversionary plan will have no traffic diverted to adjoining streets. The measures introduced will slow traffic through the neighbourhood. The traffic calming measures proposed include:

The diversionary plan will have some restrictive traffic calming measures which may divert traffic to other streets; however this will deter short-cutters and result in an overall reduction of traffic in the neighbourhood. Traffic calming measures proposed include:

There will be an Open House where City staff and members of the working group will be available to answer your questions. The Open House will be from 7:00 pm to 9:00 pm on Tuesday, June 22 at the Ballroom in the VGH Residence, located at 2851 Heather Street. If you are unable to attend the Open House please feel free to contact me with your questions, and return the attached survey with your comments.

The results of the neighbourhood survey will be presented to Vancouver City Council for approval. Your comments are important. If you have any comments or questions please feel free to call me at 604-871-6445 or email me at sara_mckittrick@city.vancouver.bc.ca. Please remember to return the attached survey either at the Open House mentioned above, in the enclosed postage paid return envelope or by faxing it to 604-871-6192 by June 30th.

Yours truly,

Sara McKittrick, E.I.T.
sara_mckittrick@city.vancouver.bc.ca
Phone: 604-871-6445

Phone: 604-871-6192

SM/srm

document3

Traffic Calming Measures

Traffic Circle
A traffic circle is a raised island located in the centre of an intersection. Vehicles travel through the intersection in a counter-clockwise direction around the island. The shape of the traffic circle is determined by the configuration of the intersection, and may not be circular. Stops signs are not used with traffic circles, `Keep Right' signs are placed along the outer edge of the circle. Traffic circles reduce accidents at intersections and may also reduce vehicle speeds and volumes.

Corner Bulge
A corner bulge an extended curb on one or both sides of a roadway to reduce its width for two-way traffic. The purpose of a curb extension is to reduce vehicle speeds, reduce crossing distance for pedestrians and increase pedestrian visibility.

Raised Crosswalk
A raised crosswalk is a marked pedestrian crosswalk at an intersection or mid-block location constructed at a higher elevation than the adjacent roadway.

The purpose of a raised crosswalk on Heather Street is to reduce speeding between 14th and 16th Avenues. Raised crosswalks reduce vehicle speeds, improve pedestrian visibility, and reduce pedestrian conflicts.

Speed Hump
A speed hump is a raised area of a roadway, which deflects both the wheels and frames of a traversing vehicle. The purpose of a speed hump on Heather Street is to reduce speeding between 14th and 16th Avenues to the posted speed limit.

Parking Restrictions
Increased parking restrictions along 12th Avenue will discourage vehicles from short-cutting along 13th Avenue. The restrictions will increase from 6:00 p.m. to 7:00 p.m. to include the end of the afternoon rush hour.

On-Street Parking
The addition of on-street parking will narrow the roadway width available for travelling vehicles. The effects of on-street parking are reductions in vehicle speeds and reductions in short-cutting traffic. This also replaces parking that may be lost on the closure of Willow Street and the additional parking restrictions on 13th Avenue.

Full Closure
A full closure obstructs all motor vehicle traffic movements from continuing along the roadway. Bicycles and emergency vehicles would still have access through the closure. The purpose of the Willow Street closure is to eliminate short-cutting traffic, and increase green space in the area.

Right-In/Right-Out Diverter
A right-in/right-out diverter is a raised triangular island at an intersection approach which obstructs left turns and through movements to and from the intersecting street for vehicles only. Bicycles will not be restricted. The purpose of the right-in/right-out diverter is to prevent short-cutting along Heather Street and Laurel Street.

Diagonal Diverter
A diagonal diverter is a raised barrier placed diagonally across an intersection that forces traffic to turn and prevents traffic from proceeding straight through the intersection. The diverter will have gaps for pedestrians and bicyclists and not restrict access to emergency vehicles. The purpose of a diverter is to reduce short-cutting along Ash Street.

"Traffic Calmed Neighbourhood" Sign
This sign advises drivers that traffic calming measures are in place within the neighbourhood, and through increased driver awareness, they will discourage short-cutting and speeding

Neighbourhood Transportation Branch

Survey on Fairview Heights

Traffic Calming Plan

ATTENTION: Sara McKittrick, 7th Floor City Hall

Please complete this survey by checking the appropriate box. Return the survey in the postage paid envelope, fax it to 604-871-6192 by June 30th, 2004 or hand in at the Open House. To validate this survey, please provide your name, address, postal code and telephone number. All personal information and responses will be kept confidential; however your comments will be forwarded to City Council. Should you have any questions, please contact Sara McKittrick (Tel: 604-871-6445, Fax: 604-871-6192, email: sara_mckittrick@city.vancouver.bc.ca)

Name:_____________________________________________________________________
Address:___________________________________________________________________
Postal Code:_______________________________________________________________
Phone:____________________________________________________________________

The Diversionary Traffic Calming Plan

Neutral

2) Would you like to be notified when this issue goes before Council?

Comments:________________________________________________________________________

__________________________________________________________________________________

APPENDIX B
PAGE 1 OF 1

SUMMARY OF SURVEY RESULTS

 

Results

Non-Diversionary

45%

Diversionary

44%

Neutral

6%

Other

5%

Response Rate

9%

APPENDIX C
PAGE 1 OF 28

SURVEY COMMENTS

"Non-Diversionary" Comments:

"Diversionary" Comments:

"Neutral" Comments:

"Other" comments:

Comments from Letters

 


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