REPORT AND RECOMMENDATIONS
The Vancouver Task Force
on Transportation Access to UBC and UEL
May 8, 1996
Contents
Introduction
Overview of Recommendations
Appointment and Members
Background
Statement of Principles
Recommendations
1. Transit
2. Traffic Calming
3. Transportation Demand Management
4. Road Allocation
5. Alternative Transportation
6. Governance
7. And Further
Appendices
A. Meetings
B. Presentations
C. Written Submissions Made to the Task Force
D. Public Meeting at Magee Secondary School
E. News Report on Photo Radar
F. Traffic Counts on University Endowment Lands.
G. SW Marine Drive Vehicle Classification Count
H. Single Occupancy Vehicle Survey
I. Survey of Dunbar Residents
INTRODUCTION
In December, 1995, The Vancouver City Council asked its newly
appointed Task Force on Transportation Access to the University of
British Columbia and the University Endowment Lands to look at
transportation and traffic issues, to and from UBC and UEL, and to
assess their impact on the surrounding neighbourhoods in light of the
present situation and the situation which will result from the proposed
Electoral Area A Official Community Plan.
Today, traffic to and from UBC and UEL, is spread over five major
access roads and exceeds 65,000 vehicles per day. This has a major
impact on these streets and their residents. We expect these volumes to
be reduced in the near future. (See Statement of Principles) By the
year 2000, we have targeted a 30% reduction in vehicle movements on and
off Electoral Area A. In order to achieve this, UBC will have to
develop and implement extensive demand management measures, including
comprehensive parking management. A major upgrade in transit services
is also required. If the recommendations in this report are adopted, we
feel that this reduction is attainable. Others, such as the University
of Washington in Seattle, have achieved similar targets.
UBC is currently BC Transit s second largest destination in the
Province. Transit is being used. However, ridership will have to
increase. The majority of UBC students, staff and faculty reside within
Vancouver. To encourage increased use of transit, service needs to be
enhanced, frequency and connections improved, and peak hours extended.
Other areas where there are sizable numbers of potential riders also
require improved services.
Clearly the bulk of the drivers who leave their cars will become
transit customers. Cycling is also a viable alternative for many in
Vancouver. Combining transit with cycling will extend the range of
potential cyclists to all areas of the Lower Mainland. UBC
should be supporting carpooling and vanpooling to further reduce the
number of vehicles entering the campus.
Until these reductions are achieved, there must be no City roads
built or widened. Vancouver s street infrastructure exists, but its use
should be better managed.
Because current traffic demand is not well-managed, the residents
of the surrounding neighbourhoods have a high degree of concern with the
ability of the University of British Columbia to manage the impact of
new development.
Further enhancements to transit, traffic demand management and the
allocation of a sizeable portion of new housing development for
students, staff and faculty at UBC are needed to ensure that traffic
does not increase.
We, the Task Force, recognize the University s desire and need to
build a complete community and to create a financial base for support of
the academic role of the university. These goals, however, must not
jeopardize the livablilty of surrounding communities. Therefore, we
urge that the University of British Columbia and the other stakeholders,
the City of Vancouver, the Greater Vancouver Regional District and the
providers of transit services, implement the recommendations contained
in this report.
OVERVIEW OF RECOMMENDATIONS
CITY OF VANCOUVER
New traffic calming measures for all residential areas.
Enforce traffic laws and by-laws.
Unify police enforcement between Electoral Area A and the City.
Implement transit priority measures including transit-only lanes.
Freeze traffic to 1993 level.
Reallocate a portion of street budget for curb extensions, transit and
bicycling facilities.
Establish a program for driver education.
Accelerate bicycle route construction.
GVRD
Gain control of non-academic development.
Manage the OCP implementation.
TRANSIT
Improve frequency and hours of service, including express bus and local
feeder service.
Construct Broadway-Granville interchange.
Provide safe and comfortable transit.
Initiate a UPass-like system.
Integrate bus schedules with class schedules.
Provide an inter-modal system (bike to bus.)
UBC
Reduce number of parking spaces, specifically by elimination of free
parking spaces.
Increase parking fees.
Plan to incorporate a minimum of 25% of future housing for faculty,
staff and students.
Give control of non-academic development to GVRD.
Introduce a UPass-like system and reduced student fares.
Adjust class schedules to improve transit service.
Support Westside traffic calming program.
Improve bicycle facilities.
Centre OCP development on a major transit node.
APPOINTMENT AND MEMBERSHIP OF THE TASK FORCE
The Task Force on Transportation Access to UBC and UEL was
appointed December 13, 1995, by a letter from the City Clerk of the City
of Vancouver.
The following individuals were named as members:
Mark Allison
Bruce Arbo
Alan Drinkwater
Jean Elder
Liz Haan
Robert Haines
Sheila Johnston
David Pasin
Willie Poon
Peggy Schofield
Shortly after the first meeting, Willie Poon was called away on
business and, therefore did not participate in the meetings of the Task
Force.
In the course of its deliberations, the Task Force appointed Jean
Elder and David Pasin as Co-Chairs.
BACKGROUND - CITYPLAN AND OCP
The City of Vancouver recently completed a long self-examination
and, by consensus, approved CityPlan. On matters of traffic and
transit, CityPlan assigned priority in street use in the following
order: (1) pedestrians, (2) cyclists, (3) public transit, (4) private
automobiles. The Task Force accepts the priority rankings. The
rankings, however, are threatened by proposed developments on land owned
by the University of British Columbia.
The Director of City Plans, et alia, in a Policy Report to the
Vancouver City Council dated October 2, 1995, and entitled Urban
Structure, expressed strong concern that proposed developments at the
University of British Columbia would make the achievement of goals
outlined in CityPlan impossible.
Pursuant to the British Columbia Municipal Act and to a Memorandum
of Understanding between the Greater Vancouver Regional District and the
University of British Columbia, an Official Community Plan (OCP) for
parts of Electoral Area A is being developed.
The February 1996 draft of the Official Community Plan, however,
has very few specifics for proposed policies on traffic demand
management.
The types of housing and terms of leases envisaged in the OCP do
not encourage sufficient numbers of students, staff and faculty to live
on campus. The University s aim of using its land to maximize an
endowment for the support of its academic mission does not coincide with
increasing numbers of campus residents.
STATEMENT OF PRINCIPLES
At an early meeting, the Task Force adopted basic principles
reflecting the aims of CityPlan and of the community groups represented
by individual members, as related to the University of British Columbia.
The principles guided the group in its deliberations.
Whereas this Task Force recognizes that there is a general
consensus to reduce traffic in neighbourhoods, and
Whereas this Task Force recognizes that solutions must consider all
neighbourhoods within the City of Vancouver, and
Whereas the merchants and individuals within neighbourhoods must be
considered, and
Whereas it is desired to have our recommendations serve as a model
for other areas within the lower mainland, this Task Force will use the
following as its guiding principles for recommendations to City Council:
1) The City of Vancouver should implement an immediate freeze on
all vehicle movements at 1993 levels.
2) There should be a reduction of 30% in vehicle movements by the
year 2000.
3) There should be immediate traffic calming measures implemented
in neighbourhoods that require them, and existing traffic
regulations be strictly enforced.
In addition, while this Task Force will consider future development
and population growth within the City of Vancouver and the area known as
Electoral Area A. Any future non-educational development (i.e., market,
student and social housing, as well as commercial development) within
Electoral Area A should meet Principles 1 and 2 of this Task Force prior
to approval by the appropriate bodies of the GVRD. All future planning
should take into consideration the final recommendations of this Task
Force within any proposal for future development.
(See Appendices F and G for current traffic counts.)
TASK FORCE RECOMMENDATIONS
(Note: Within each group, recommendations appear in the order of their
importance.)
1. TRANSIT
A Smarter, More Effective Transit System
The future of single occupancy vehicles is limited. Pollution,
traffic congestion, safety hazards and land use have great impact on
the City s neighbourhoods, making public transport the top priority.
Public transit s share of the transportation market must increase
significantly if the desired reduced levels of traffic are to be
achieved. The Task Force believes the current transportation plans for
the GVRD, including those for Electoral Area A, are inadequate to
achieve the required major shift to public transit use.
Currently, transit use to the university is high. UBC is, in fact,
the second-highest transit destination in the province. New development
will provide the required density to justify new services, including
extension of the LRT to Electoral Area A. However, existing service
must be improved now, without waiting for additional development to
occur. Such immediate improvements must include increases in frequency
of service and extension of hours of service.
Proposals for transit routes are included with the Draft OCP of
February 21, 1996. It is noted that portions of the transit plan will
be implemented only as housing develops on the South Campus. Transit
services must be in place before each portion of development is
completed. Different and more efficient routes may be found which would
serve the whole campus. Electoral Area A should be identified as a
"Transit Intensive Zone".
Bus transit services for use in this area include the following:
RapidBus. This is a fast service. Entry is made at all doors.
Fares are payable at the stop.
Express. Express buses are conventional buses on normal routes
which make only limited stops along a portion of the route.
Local. Local buses stop at all bus stops.
Short-turn. Short turn or shuttle buses run on normal
routes, but only on the high-demand portion of the route.
Neighbourhood. Neighbourhood buses offer service within a
limited area. They may not follow a regular route. In
addition, they may also offer service on demand.
Recommendations 1.1 through 1.5, in line with CityPlan, are
designed to improve bus service to the UBC campus by making it faster
and more reliable. Giving RapidBus priority in congested areas and at
signals will improve service. This will advertise to automobile drivers
the advantages of being on transit. Providing such a priority may
require a change in the law.
If BC Transit cannot provide community transit services, private
entrepreneurs should be encouraged to do so. The LINC Service
currently being piloted in Ballard, Washington, is worth close study.
Recommendation 1.1: Accelerate development of RapidBus from
Richmond, currently scheduled for 1998, to coordinate with
the start of the Broadway-Lougheed Corridor in September 1996.
Recommendation 1.2: Give RapidBus signal priority along its
designated routes. Where possible, an existing lane must be
provided for this purpose.
Recommendation 1.3: Provide express bus service by September
1996 between UBC and the downtown core, between Metrotown and
UBC, and along Main Street to Broadway.
Recommendation 1.4: Improve local feeder service providing
access to UBC: the north-south service west of Granville
Street (Arbutus, Macdonald and Dunbar.)
Recommendation 1.5: Develop a short turn service to UBC,
between 7:45 and 9:30 a.m., from Granville along West 4th,
West 25th, West 41st and West 49th Avenues.
Neighbourhood or community service should be developed to include
the following` areas: Electoral Area A, West Point Grey, Kitsilano,
Dunbar and Kerrisdale.
Recommendation 1.6: Develop neighbourhood transit service as a
pilot project in one of the above areas. Such a service
should link the major community destinations. This service
may take the form of on-demand or flag-and-ride.
Recommendation 1.7: Support the construction of the
Broadway-Granville Interchange as a primary transit centre for
north-south and east-west commuters.
Recommendation 1.8: Ensure that the OCP includes a
full-service, centrally located transit depot for Electoral
Area A.
The Task Force also considered matters which are not related to
engineering and would require much less capital investment. We have been
impressed with the UPass System developed at the University of
Washington and the arrangements made at the University of Victoria and
Camosun College, Victoria. We noted that the UBC Main Campus Plan,
1992, states, "A half hour earlier start to the day will enable a
greater proportion of the bus fleet to be used to service the campus."
So far this has not been acted upon.
Recommendation 1.9: Establish a programme for reducing the
cost of transit passes for all students. Subsidies could be
derived from increased parking fees at UBC and from BC
Transit.
Recommendation 1.10: Adjust class schedules to achieve better
utilization of the bus fleet.
Recommendation 1.11: Encourage cycling by providing secure, covered
bicycle storage at appropriate UBC campus locations, at all transit
stations, major transit interchanges and park-and-ride lots; and
equip all buses with bicycle racks immediately.
Questions of security and the appearance of security for passengers both
on and waiting for transit, have been raised a number of times. Bus
shelters need to be made more inviting and secure, and timetable
information is required. Shelters must be well-maintained with regard
to drainage and rubbish removal.
Recommendation 1.12: Provide secure and comfortable bus
shelters; the City should consider encouraging local
initiative or private enterprise in the development of
neighbourhood bus shelters, all of which should include
benches and an emergency signal of some sort.
Recommendation 1.13: Build curb extensions into major transit
stops so buses do not have to pull in and out of traffic.
It came as a surprise to the Task Force to realize that the City of
Vancouver did not have any control over the development of bus routes.
We believe that any municipality, not just Vancouver, must have control
of its own bus routes. It is extremely important that the consultative
process begun in CityPlan be continued. Groups of citizens must be
consulted about traffic problems in their areas and about bus routes.
Recommendation 1.14: Negotiate procedures with BC Transit and
the Vancouver Regional Transit Board to ensure proper
consultation with users and with the City of Vancouver when
new bus routes are proposed or established ones are to be
changed or abandoned.
2. TRAFFIC CALMING
Improve Neighbourhood Livability
Citizens and neighbourhood associations throughout the west side of
the City have expressed concerns about the negative impact of excessive
traffic volume and speed. Major roads into the University are
particularly impacted, but commuter spillover onto side streets occurs,
as well. There is much frustration expressed about the delay or
inability to deal with traffic and livability issues. For residents
on east-west arterials, UBC traffic volumes account for a large
percentage of the total traffic volume.
To a considerable extent, UBC traffic is currently unmanaged, but
neighbourhood livability can be improved through traffic calming
measures. UBC should be funding some of these measures.
We have reviewed the City of Portland Traffic Calming Program which
covers traffic calming measures; policies and procedures for both local
and arterial streets. We find this to be an innovative program and
worthy of serious consideration for implementation here in Vancouver.
Recommendation 2.1: Create a Traffic Calming Program, with
citizen involvement, for all residential streets. The program
is not to be complaint driven but, instead, to be part of a
coherent and consistent plan for the entire city.
Recommendation 2.2: Implement traffic calming on the entire
west side (west of Granville), using a project-ranking
technique so that the most severely impacted street segments
get first attention, but in the context of the entire
neighbourhood.
Recommendation 2.3: Implement equal treatment for all arterial
roads in order to maintain consistency in the use of advanced
left turn signals, left turn bays, light characteristics,
crosswalks or anything else which influences the volume and
speed of traffic.
It has been 20 years since Vancouver s last Truck Transportation
Study. Residents are concerned with a perceived lack of control over
trucks on city streets and with inadequate differentiation between one
sort of street and another. (See Recommendation 4.6.)
Recommendation 2.4: Amend the Street and Traffic By-Law to
include further limits on hours of operation, so that trucks
are not allowed to pass through what are in fact residential
streets between 6:00 p.m. and 8:00 a.m.
If the regulations of the Motor Vehicle Act and the City of
Vancouver By-Laws are not consistently and regularly enforced, the City
will gradually lose control of its streets. The Task Force welcomes the
use of the photo-radar cameras and any other means by which those who
travel through our neighbourhoods at excessive speeds are apprehended.
There is a need to lower speeds on all access roads into UBC,
including West 4th and West 10th, for safety and noise reasons. The
most effective way to do this is with better enforcement which includes
more police presence and more and better tools. (See Appendix E.)
We feel that a portion of the moving violation fine revenues
generated within the City should be returned the traffic calming
program and other traffic education programs.
Recommendation 2.5: Enforce existing traffic and noise
by-laws, including issuance of deterrent fines. Use
photo-radar cameras and red-light cameras to assist in this.
Recommendation 2.6: Enforce the 30 Km/H speed limit around all
parks and schools, whether they are on arterial roads or not.
Recommendation 2.7: Implement a 40 Km/H speed limit on all
local residential streets.
Recommendation 2.8: Traffic lights should be timed for traffic
flow at 50 Km/H and this should be advertised.
The Task Force welcomes the statement in the Draft OCP that
"Principles of traffic calming will be applied both in the residential
area and in the academic core to ensure the safety and the
attractiveness of the public realm for cyclists and pedestrians (page
18)."
Recommendation 2.9: Insist the statement in the Draft OCP be
expanded to include an explicit statement that traffic calming
devices (i.e., narrow streets, on-street parking, short
blocks, limited off-street parking and other measures) be
designed to slow vehicle traffic.
3. TRANSPORTATION DEMAND MANAGEMENT
Provide Incentives to ChangeDriving Habits
The Task Force noted that the Ministry of Employment and Investment
had set up the BC Transportation Financing Authority which had created,
in its turn, the Regional Transportation Demand Project with
representatives from the BCTFA, the Ministry of Transport and Highways,
BC Transit, the Fraser Valley Regional District and the Greater
Vancouver Regional District. The purpose of the Regional Transportation
Demand Project is to devise ways to encourage people to leave their cars
at home.
A report, The Regional Transportation Demand Project: Progress
Report, was presented to the Task Force on March 6, 1996. It is clear
that discussion is continuing. It is equally clear that actual changes
have not yet been carried out.
The transportation habits of those people going to UBC are the
particular concern of this Task Force. It is the view of this Task
Force, traffic demand management (TDM) measures in Electoral Area A and
UBC the University have not been effective thus far. Supporting this
view is the experience op of concerned citizens who counted traffic
entering and leaving the University campus for a twelve-hour period in
January. They found approximately 85% of the vehicles were single
occupant vehicles only. (See Appendix H.)
The City of Vancouver should ask the University of British Columbia
to carry out Recommendations 3.1 through 3.4 as soon as possible.
Recommendation 3.1: Set UBC parking rates in relation to the
cost of public transit. As a rule of thumb, the daily parking
fee should be twice a three-zone transit fare.
Recommendation 3.2: Include restrictions on free parking for
non-residents of Electoral Area A now and in the OCP.
Recommendation 3.3: Include the following proposition in the
OCP: revenues generated from parking operations are to be
dedicated to alternative transportation modes, such as shuttle
bus services, transit pass subsidization, and in improved
pedestrian, cycling and transit facilities.
Recommendation 3.4: The University s administrators should
establish a practical and efficient carpool service. This
service is to match drivers with possible passengers among UBC
students, faculty and staff, and should be in effect no later
than September 1997. (Note: There is a security consideration
in this matching chore which precludes assigning it to the
Alma Mater Society.)
The following recommendations apply to the City as well.
Recommendation 3.5: In lieu of building parking spaces, allow
developers reallocate funds for the construction of those
spaces to the City or UBC for use in the construction of
pedestrian, transit and cycling facilities.
Recommendation 3.6: Adopt a Registered Carpool and Vanpool
Parking Priority By-law, so that premium parking places in the
City and on campus be reserved for carpool and vanpool use.
These should be less expensive than other vehicle parking
locations.
4. ROAD ALLOCATION
Better Utilization of Roads
Growing demand for travel, from both increased west side density
and new developments at UBC, will tax our total transportation system.
It will also impact on our neighbourhoods and economy. The City s
streets and transportation corridors must be carefully managed.
Recommendation 4.1: Implement "transit only lanes" on high
volume bus routes, such as West 10th, and develop
"queue-jumping" devices at busy intersections to give
advantage to transit. Give consideration to transit-only
lanes on West 4th and West 41st Avenues where transit volumes
warrant.
The Task Force support neither the creation of new high occupancy
vehicle (HOV) lanes, nor the assignment of lanes on existing streets to
high occupancy vehicles. Experience elsewhere shows that problems
created outweigh any advantages gained.
Recommendation 4.2: Do not build HOV lanes.
Recommendation 4.3: Preserve on-street parking in commercial
areas.
Recommendation 4.4: Urge the GVRD to ensure transit-only lanes
for Electoral Area A be compatible with City policies.
The present street classification system, designating streets as
local, secondary or primary arterial, is not even meeting current
needs. We suggest that the City needs not three, but at least five
classes of streets. It is necessary that there be a new plan for the
use of streets - a comprehensive and coordinated plan which ties
transportation uses of our streets to the land uses around them.
Currently some of our streets are carrying higher classifications
solely due to UBC traffic volume. This traffic volume works a hardship
upon those streets which, otherwise, would be entirely residential.
Recommendation 4.5: Appoint a committee or task force which,
including representatives of the public, to devise a new and
more realistic system of street classification.
The last comprehensive truck transportation study is twenty years
old. Since that time Truck volume has expanded greatly on the west side
of the City. At present, there are no effective mechanisms in place to
manage the impact of truck volumes, sizes or times on the City s
residents. UBC s Official Community Plan development will compound
this. (See Appendix G.)
Recommendation 4.6: Review, update and otherwise revise
Vancouver s truck route network with regard to the years of
unanswered development in the City and to anticipated growth
at UBC. The review, to be undertaken in consultation with
affected citizens, should consider a wide number of things,
including alternatives to existing routes, time controls,
noise controls, shielding and size restrictions.
Recommendation 4.7: Reallocate a portion of left turn bay and
road widening budgets for curb extensions, transit and
bicycling facilities.
Recommendation 4.8: Urge that the OCP restrict the development
of secondary industry on Electoral Area A to ensure that it is
environmentally friendly and will not require heavy truck
traffic. Urge the University to find a new route to the
south, by-passing the City of Vancouver to the greatest
possible extent.
5. ALTERNATIVE TRANSPORTATION
Alternatives to Driving
Practical alternatives to driving a car are walking, cycling,
taking a bus, or other forms of transit.
After transit, the next most important alternate mode of access to
the University-area is the bicycle. The Task Force has received a
number of cyclists' reports, all agreeing that encouragement of
cycling requires improvement of all currently designated cycle routes
and development of additional ones.
There should also be adequate provision of safe, dry and
inexpensive bicycle storage at major destinations and better shower and
change facilities.
Recommendation 5.1: Accelerate work on the proposed city
bicycle network and install an all-weather surface on a
bicycle path through Jericho Park to connect Point Grey Road
and NW Marine Drive.
Recommendation 5.2: Upgrade existing bicycle routes to remove
safety problems. All roads from the City to Electoral Area A
should be upgraded to promote safe, direct and comfortable
cycling.
Recommendation 5.3: Give priority to a pilot project on the
Burrard Bridge which creates clearly marked bicycle lanes on
the road surface of the bridge and its approaches.
A 1992 survey conducted by the Student Environment Centre at UBC
found that 50% of cyclists en route to UBC used University Boulevard.
It is clear that priority should be given to upgrading this route.
Recommendation 5.4: Urge the Ministry of Transport and
Highways to include bicycle lanes in the proposed improvement
of University Boulevard and to improve the intersections of
East Mall and Wesbrook with University Boulevard for cyclists
and walkers.
Many potential cyclists could benefit from the convenience and
security of combining bicycle and transit trips. Such an improvement
would allow cyclists encountering difficulties to use transit as a
backup.
Recommendation 5.5: Install bike racks on all BC Transit
vehicles immediately.
Recommendation 5.6: Amend the City of Vancouver By-Laws to
make mandatory the provision of bicycle lockers at all major
destinations and transit interchanges. Locker prices at UBC
and in the City should be the same.
Driver and cyclist etiquette and education should be promoted and
encouraged by BC Transit, cyclist associations and by the City. This
program would further serve all commuters by promoting better and safer
alternative forms of transportation.
Recommendation 5.7: Educate transit drivers on the needs of
cyclists and cyclists on the responsibilities of Transit
drivers.
Recommendation 5.8: Insert provisions into the OCP by which
the proposed bicycle routes and greenways be built and
maintained as a priority in the operating budget; and ensure
that Electoral Area A and UBC cycling policies be compatible
with those of the City of Vancouver.
Recommendation 5.9: Encourage the formation of a
Cyclist/Pedestrian Advisory Committee with representatives
from Electoral Area A, West Point Grey and other stakeholders
including the UBC Student Environment Centre and Cyclist
Associations at UBC.
Education is an important component in any shift in transportation
mode. Current programs in Vancouver are of patchwork nature and suffer
from under funding.
Recommendation 5.10: Reallocate a portion of funds from
increased traffic fine revenue into education programs for
drivers and cyclists. In particular, funding should be
provided to expand CanBike training courses for adults and the
Bike Smarts program offered by the Vancouver School Board.
Encouragement of pedestrians might be done by improvement of
sidewalk paving and enhancement of neighbourhoods with landscaping and
benches. The City of Vancouver annually inspects its sidewalks for
pedestrian hazard. If NW Marine, Chancellor Boulevard, University
Boulevard and West 16th are turned over to the city, the footpaths
presumably would also be inspected. If they are not, the City must urge
the Ministry of Transport and Highways and UBC to carry out such
inspections.
Recommendation 5.11: Inspect the sidewalks and footpaths along
West 16th Avenue, University and Chancellor Boulevards, west
of Blanca to identify and correct any pedestrian hazards.
The Task Force was unable to consider any other kinds of private
vehicles but it noted that the automotive industry has now offered for
sale electric cars in California and Arizona. It feels that these types
of vehicles should be offered to the people of British Columbia.
6. GOVERNANCE
There are two basic problems of jurisdiction involved in the
relations of the City of Vancouver with its neighbours. One problem
relates to the legal status of the Official Community Plan for Electoral
Area A. The other is the City's relation with the Ministry of
Transportation and Highways.
Legal Status: Hugh Kellas of the Greater Vancouver Regional
district, told the Task Force that the GVRD is "involved because the UBC
campus is not incorporated in the City of Vancouver. The Official
Community Plan is being prepared under the terms of the Municipal Act
and the final version of the OCP will be a by-law of the GVRD" (Task
Force minutes, January 24.) On the other hand, David Grigg of UBC told
the Task Force, "UBC is controlled by the University Act and is not
bound by the Municipal Act" (Task Force minutes, February 21.)
The Task Force understands some agreement has been made for joint
planning between the University and the Regional District.
(As an example of difficulties which may arise in the absence of
effective joint planning, the Memorandum of Agreement between GVRD and
UBC established a time during which the University would make no
further commitments for non-institutional buildings. That period
expires at the end of March. According to a public statement made to
some faculty members, the University feels free to continue with its
plans for the development of a 170-room hotel on the site of the former
Faculty Club without awaiting the completion of the OCP.)
Recommendation 6.1: Urge the Government of British Columbia
to amend the Universities Act to place, at least those areas
developed for profit and/or private housing at UBC under the
control of the Municipal Act.
Ministry of Transport and Highways and City: NW Marine Drive,
Chancellor Boulevard, University Boulevard, West 16th Avenue and SW
Marine Drive, the roads between the boundary of the City of Vancouver
and the University s property, are under the jurisdiction of the
Ministry of Transport and Highways. As a result, very wide and sweeping
roads, such as West 16th Avenue west of Blanca and Chancellor Boulevard
west of 4th, spill drivers directly onto streets in residential areas of
the City. Consistent street design and control would be more easily
achieved if these roads were directly under the control of Vancouver.
Recommendation 6.2: Petition the Government of British
Columbia to transfer certain roads (NW Marine Drive,
Chancellor Boulevard, University Boulevard, West 16th Avenue
and SW Marine Drive) currently under the jurisdiction of the
Ministry of Transport and Highways and their corresponding
maintenance budgets from the Ministry to the City of
Vancouver.
The RCMP has jurisdiction over those parts of the roads under the
Ministry of Transport and Highways. The University s Campus Security
Patrol is also to be found in the area under consideration.
Information supplied by the UBC Planner suggests to the Task Force that
the Campus Security Patrol is not able to exert effective control over
either traffic speed or over other infractions under the Motor Vehicle
Act and, moreover, that it has no jurisdiction over crimes against
persons. The role of the Campus Security Patrol appears to be limited
to enforcement of parking regulations and investigation and prevention
of crimes against property.
Recommendation 6.3: Enter into discussions with the Province,
the RCMP and UBC to determine whether peace keeping and
traffic control would be better served by extending the
jurisdiction of the Vancouver Police Department (with
suitable budgetary support from the University and the
Province) to cover the entire campus of the University and the
University Endowment Lands. (Such an extension of
jurisdiction has already been accomplished for Fire
Fighting.)
If the Ministry is to retain jurisdiction over its roads and the
RCMP is to have its present jurisdiction, then the boundary between the
City of Vancouver and Electoral Area A should be more clearly marked.
Even if Recommendations 6.2 and 6.3 are carried out, the following
Recommendation should be seriously considered.
Recommendation 6.4: Erect (or encourage community groups to
install) signs or markers near the boundaries between the City
and the University lands bearing the following or a similar
text: "Entering the City of Vancouver. Residential Area. Speed
Limit 50 Km/H. Parks and Schools 30 Km/H. Enforced by Photo
Radar." Such signs or markers should be placed on all
the major access roads leading into the City of Vancouver.
7. AND FURTHER
The Future
The digital revolution has already begun. The City of Vancouver
may find that transit needs will shift substantially over the next few
years as patterns of work change.
Recommendation 7.1: The Task Force recommends that the City
of Vancouver and Electoral Area A examine existing building
by-laws to see that provisions for computer terminal wiring
are included; and further that the City ensure that shared
space for the utilization of computer and other electronic
equipment is provided for.
APPENDIX A. MEETINGS
The first meeting was January 10 and the Task Force met at the City
Hall on alternate Wednesday until March 20. At those meetings, Lawrence
Cantrell of the City Clerk's Office acted as secretary and experts from
a variety of agencies were present.
The Task Force appointed co-chairs David Pasin and Jean Elder, who
alternated chairing the meetings.
In addition, the Task Force found it needed more time and it met
without visitors on alternate Mondays at members' homes.
March 13 the Task Force held a public meeting through the auspices
of the Dunbar Community Centre. (See Appendix D.)
APPENDIX B. PRESENTATIONS MADE TO TASK FORCE
AT CITY HALL MEETINGS
The members of the Task Force gratefully thank all those who
offered so much information and help.
The first meeting was addressed by Ian Adam, Assistant City
Engineer, Transportation and by Ted Sebastian, City of Vancouver staff.
Peter Judd, Assistant City Engineer, Transportation Planning Project.
January 24: Hugh Kellas, Administrator of Strategic Planning for
the GVRD and John Steil of Stanley Associates, UBC Community Plan
Consultant.
February 7: Glen Leicester, BC Transit.
February 21: Ian Fisher, Transport 2000, David Grigg, UBC Planner.
March 6: John Whistler, Bicycle Advisory Committee; Clive Rock,
GVRD.; Duncan Cavens, UBC Student Environmental Centre; David Rudberg,
General Manager, Engineering Services, City of Vancouver.
In addition, members of the Task Force, in so far as they could,
attended the four Public Forums, held at Robson Square Media Centre by
the City of Vancouver during the month of January.
Task Force members were also presented with a number of
publications and reports dealing with traffic problems in the City of
Vancouver and elsewhere. The GVRD has produced Livable Regions
Strategy and Transport 2021 , the Minister of Environment Air Quality
Management Plan and the City of Vancouver its CityPlan. In addition,
the Task Force has examined reports and proposals from a variety of
interest groups including neighbourhoods.
APPENDIX C. WRITTEN SUBMISSIONS PRESENTED TO TASK FORCE
1. UBC Student Environment Centre, Submission to UBC Transportation
Task Force.
2 . SW Marine Drive SOV Survey
3. Gordon Kishkan, District Engineering Technician to Task Force,
February 7, 1996
4. Vladimir P.J. Krajina to Jennifer Clarke, February 23, 1996
5. Thomas Blom, President, UEL Resident Association, March 4, 1996
6. Scott Edwards, Traffic Management Branch to Mark Allison, March 1,
1996
7. LINC Seattle Engineering Department
8. Alan Drinkwater, Key Issues and Comments - Merchants/Professional
9. WPG Healthy Neighbourhood Plan. Goal 2. A User-Friendly
(Pedestrian First) shopping District to be established on West l0th
Avenue.
10. Mark Allison, Task Force member, Proposed Methodology and Report
Format
11. Michael Haggerty, Letters March 15, 1996 and March 27, 1996.
12. Dunbar Residents' Association Questionnaire re: traffic
13. Chris Overall, Letter March 21, 1996
APPENDIX D. PUBLIC MEETING AT MAGEE
SECONDARY SCHOOL, MARCH 3, 1996
This meeting was held through the agency of the Dunbar Community
Association and thanks are particularly due to that Association and its
President for the success of the public meeting.
The Task Force is grateful to the staff from the City of Vancouver,
the Ministry of Transport and Highways and other agencies for their help
in arranging and recording the results of this meeting.
i. PUBLIC INPUT ON TRANSIT
1. Need for posting of timetables at bus stops
2. Direct link to airport from Granville St.
3. 41st Avenue for RapidBus
4. Express bus for 41st to Metrotown
5. Bus should go along 47th to UBC to connect with Skytrain
6. Difficult to take buses out of peak hours
7. What about free bus travel for students and workers outside of peak
hours?
8. Lighting at bus stops should be improved
9. Advertise Stop-on-Demand at night
10. Governance problem when the BC Transit province-wide operation
11. Should use streetcar lines before we lose tracks
12. Transit hub at Broadway and Granville could impact pedestrian and
cross traffic on West Broadway
13. Local transit on Marine should be a priority
14. Better Park-and-Rides should be developed in Richmond
15. City tax payers should pay be issued bus passes with tax receipts.
(used in Europe)
16. Take more control over traffic
17. Waiting and waiting in rain discourages transit use. Need
reasonable facility which is predictable
18. Shelters should be made more interesting - perhaps by private
enterprise or community developed
19. Direct bus route from Seabus and Blue Bus to UBC would be helpful
20. Minibuses should be developed either by BC Transit or private
entrepreneurs
21. High quality waiting areas a requirement
22. Reduce cost of bus fares to encourage UBC passengers especially
23. Have more buses and more routes
24. Want bus route on Marine from Granville
25. If buses are forthcoming from BC Transit then should develop
privately-owned mini-buses to take people who cannot get on
crowded buses on short runs between neighbourhood destinations
26. Better Transit Service
27. "Subsidy" going to private car use should go instead to transit
28. Lots of different types of buses should be used.
29. Light Rail - should be reconsidered as is extremely expensive and
would therefore get over all
improvement rather than improvement on one route only
30. Don't want central depot at UBC
31. Roads to UBC can handle 25% more traffic so buses won't be caught
in gridlock.
32. Buses - favour improvement in interior design, low floor, bus stop
enhancement, schedules at stops, neighbourhood identity in
shelters, time restrictions on Broadway bus lanes
33. Use 10th-12th Ave. for buses
34. Transit should be given priority at lights and on roads
35. High quality waiting areas should have emergency button
ii. PUBLIC INPUT ON TRAFFIC CALMING
1. Speed bumps - 22' design for any speed/preferred to stop signs
2. Enforce speed limits; 30 k adjacent to all parks
3. Photo radar at intersections (red light camera)
4. OCP should call for limited off-street parking and short blocks
5. Funding for moving violations to be returned to municipality to be
used for transit.
6. Traffic island use encouraged.
7. Shorten bike route - south of West 16th on Wesbrook-Triumph Road
8. Traffic circles - larger to accommodate long wheel based vans -
educate public re: circle etiquette
9. What is calming purpose of traffic circles? to reduce speed or
reduce volume or both?
10. Pinch points - to prevent larger vehicles from entering
11. Raised intersections - according to UBC planner had been tried but
Ministry of Transportation and Highways disliked them.
12. Four Way stops were discussed - both positives and negatives
13. Should be graduated fines for repeat speeding violations
14. 30-50k it was argued was more efficient than slower or faster
engine speeds
15. It is possible to influence choice of transit at the beginning or
at the end of a trip but not after the driver has begun trip by
car. Therefore, traffic calming measures will not reduce car use.
16. Traffic lights should be timed to 50K and such timing be
advertised.
17. Neighbourhood residents should be involved in all decisions re.
traffic-calming devices in their neighbourhoods.
18. Should be 30 Km/H speed limit on all residential streets and should
be enforced.
19. Speed bumps should be incorporated into all lane-paving as matter
of routine
20. Curb-installments - City should be pro-active
21. Street classification should be studied (e.g., of Portland)
22. Additional traffic calming hardware at UBC should be paid for by
UBC
23. Should be educational programme on driver etiquette
24. S.W. Marine intersections should be reviewed to increase traffic
movement
25. Bumps at intersection
26. Safety vehicles must be able to pass through streets freely
iii. PUBLIC INPUT ON ROAD ALLOCATION
1. Bikers and transit don';t mix
2. Trucks on non-designated truck routes - to be fined
3. Stricter enforcement traffic by-laws
4. Bike priority at intersections
5. S.W. Marine should be doubled? Would widening damage residential
areas?
6. tunnel under Fraser?
7. Open Blenheim-Dunbar-33rd-37-King Edward
8. Reduce vehicle use on commercial streets (like Dunbar) and have it
go on other through streets.
9. Ease parking restrictions during off-hours
10. New route to UEL - tunnel from Richmond
11. Re-evaluate truck designation on certain streets
12. Re-evaluate truck designations on certain streets
13. Discourage HOV unless for bus only
14. Exclusive bus use - adjacent to parking or in centre lane
15. Bikes should not mix with HOV
16. Reallocate left-turn budgets
17. Keep traffic off local streets
18. Keep parking on streets
19. Modify proposal for busers on 4th and 41st to drop reference to
cars or change to when strong agreement
iv. PUBLIC INPUT ON ALTERNATIVE TRANSPORTATION
1. Lower cost of bike lockers
2. Spread bike lockers around campus
3. Physical separation to cars and bikes gives comfort
4. Bike routes too often interrupted by Stop Signs.
5. Widen bike lanes
6. Integrate bikes and Transit
7. Mark bike lanes in intersections with Left Turn Bays
8. Better enforcement at lights
9. Separate bike routes and truck routes
10. Cross town routes - not arterials - no sharing
11. Reduce merging of routes carrying bikes with other traffic
12. Crossing signals activated by button should react more quickly
13. Bike storage should be covered.
14. Burrard bridge
-- reduce lanes
--no left turn on south end
--low cost divider enough
--ramp for pedestrians and bikes to route North of Cornwall
required
15. N.E. Marine - should be protected for walking spaces
16. Bike lines to UBC could be developed by reducing width of boulevard
17. Promote, educate and advertise
18. Widen S.W. Marine to allow bike lanes
19. Only minor increases in parking rates are needed to persuade
students to stop driving
20. Pave Blenheim from 41st to King Edward--I can't cycle on it! It
must be the worst street in the whole city. Don't say that
traffic will then go fast--it already does! Thank you!
21. Walking should be promoted
22. Taxis and jitneys to HOV lanes should be examined.
v. PUBLIC INPUT ON GENERAL MATTERS
1 Add mission statement for each topic
2. Promote activities, educate in alternative modes
3. Advertise bike lanes, lockers etc. in positive way
4. Specifically target UBC housing to students, staff and workers
5. Ensure recommendations are related to target market
6. Provide services and shopping for population
7. Change objectives of City department of Engineering to place
priority on residents not cars
8. Interface between Ministry of Transportation and Highways and City
of Vancouver roads a problem. High speed road spills into
neighbourhood streets
9. Restrict all development at UBC especially market housing
10. Lack of receptivity at UBC deplored. UBC sliding into municipal
government without necessary skills and experience. Also against
mission as academic body.
11. School children should go by bus not by parent
12. Car is a safe, closed environment in which driver feels
comfortable. Hard to dissuade.
13. Might reorganize objectives into short term possible/desirable and
long term
14. Needs fixing before construction (170 room hotel) 2 years
15. Needs to be fixed as soon as possible (safety, neighbourhoods,
etc.)
17. Long term possible - 33rd as a secondary arterial being downgraded
in sections to allow for Stop sign placement at least.
APPENDIX E. NEWS REPORT ON PHOTO RADAR
APPENDIX F: MINISTRY OF TRANSPORT AND HIGHWAYS
TRAFFIC COUNTS ON UNIVERSITY ENDOWMENT LANDS
4th Avenue
October 1994 Mon Tue Wed Thu
Fri
West-bound 5,533 5,584 5,734 5,598
5,675
East-bound 6,214 6,170 6,276 6,301
6,512
Totals 11,747 11,754 12,010 11,899
12,187
10th Avenue
October 1994 Mon Tue Wed Thu
Fri
West-bound 8,428 8,950 8,953
8,884 9,557
East-bound 8,862 9,440 9,490 9,549 10,170
Totals 17,290 18,390 18,443
18,433 19,727
16th Avenue
October 1994 Mon Tue Wed Thu
Fri
West-bound 6,061 6,326 6,474 6,441
6,333
East-bound 5,920 6,063 6,195 6,152 6,029
Totals 11,981 12,389 12,669 12,593 12,362
SW Marine (Incl 41st)
September 1993 Mon Tue Wed Thu Fri
West-bound 10,968 10,786 10,961 10,919
11,080 East-bound 10,815 10,710 10,727
10,593 10,635 Totals 21,783 21,496
21,688 21,512 21,715
NW Marine
September 1994 Mon Tue Wed Thu Fri
West-bound 1,222 980 1,110
1,301 1,481
East-bound 1,038 752 927
1,178 1,372
Totals 2,260 1,732 2,037
2,479 2,853
TOTAL
TRAFFIC Mon Tue Wed Thu Fri
West-bound 32,212 32,626 33,232 33,143 34,126
East-bound 32,849 33,135 33,615 33,773 34,718
TOTAL 65,061 65,761 66,847 66,916 68,844
APPENDIX G: SOUTHWEST MARINE DRIVE
VEHICLE CLASSIFICATION COUNT
The Vancouver Engineering Department conducted a vehicle
classification study starting at noon on Thursday, March 14 and ending
at noon Friday, March 15, 1996. This study was set up east of Camosun
Street.
The purpose of the study was to count all vehicle types entering
the University Endowment Lands from SW Marine Drive. Total vehicles
counted over this 24-hour period were 15,363.
Of most significance was the heavy truck count: 397 three- to
seven-axle trucks. The majority of these, no less than 356 vehicles,
entered or left the UEL between 8 a.m. and 7 p.m. This amounts to
somewhat more than one heavy truck for every two minutes throughout
working hours.
Vehicle Counts SW Marine Drive March 14-15, 1996
Motorcycles 446
Cars 12,645
Pick-up Trucks 1,831
Buses 9
Trucks
2-axle 35
3-axle 292
4-axle 7
3-4-axle semi 61
5-axle semi 13
6-axle semi 7
7-axle dual 15
6-axle dual 1
7-axle dual 1
8-axle dual 0
Total Trucks 432
Total Heavy Truck (3+ axles) 397
Total East-bound 7,722
Total West-bound 7,641
Total Vehicles 15,363
APPENDIX H: SOUTHWEST MARINE DRIVE
SINGLE OCCUPANCY VEHICLE SURVEY
On January 10, 1996, the Southwest Marine Drive Ratepayers
Association, observing from Musqueam Park, surveyed automobile traffic
moving on and off the University Endowment Lands along SW Marine Drive.
The purpose of the survey was to determine the number of single
occupancy vehicles (SOV) and multiple occupancy vehicles (MOV). The
survey extended from 6:00 a.m. to 6:00 p.m. The count was made of
automobiles. Trucks and commercial vehicles of all kinds were
excluded.
In the morning rush hours, 7:00 to 10:00 a.m., 1,999 of the 2,338
westbound cars were single occupancy vehicles, 85.5% SOV. During the
afternoon rush hours, 2:00 to 6:00 p.m., 76.7% of the 2,884 vehicles
were SOV.
Overall, east-bound automobile traffic was 80% SOV. Westbound
traffic was almost 90% SOV.
East-bound traffic from 2:00 p.m. to 3:00 p.m. yielded the day s
lowest percentage of single occupancy vehicles: 70.6%.
East-bound West-bound
Time SOV MOV Total %SOV SOV MOV Total
%SOV
6:00- 6:59 a.m. 64 3 67 95.5% 234
7 241 97.1%
7:00 -7:59 a.m. 191 13 204 93.5% 615
27 642 95.8%
8:00 - 8:59 a.m. 193 20 213 90.6% 724
160 884 81.9%
9:00 - 9:59 a.m. 143 27 170 84.1% 660
152 812 81.3%
10:00-10:59 a.m. 201 36 237 84.8% 428
28 456 93.9%
11:00-11:59 a.m. 205 48 253 81.0% 380
21 401 94.8%
12:00-12:59 p.m. 369 85 454 81.0% 299
41 340 87.9%
1:00- 1:59 p.m. 357 84 441 80.9% 287
62 349 82.2%
2:00- 2:59 p.m. 394 164 558 70.6% 288
14 302 95.9%
3:00- 3:59 p.m. 582 216 798 72.6% 311
20 331 94.0%
4:00- 4:59 p.m. 591 160 751 78.5% 282
15 297 95.0%
5:00- 5:59 p.m. 646 131 777 83.1% 295
15 310 95.2%
Totals 3,936 987 4,923 80.0% 4,803
562 5,365 89.5%
APPENDIX I: SURVEY OF DUNBAR RESIDENTS
In March 1996, the Dunbar Residents Association Traffic Committee
distributed 5,000 survey forms to Dunbar-area residents. The forms
contained the following text:
"Over the next 20 to 30 years, UBC is planning to add housing
for an extra 12,000 people. The impact on local traffic will
be substantial unless measures are taken now to reduce the
impact. Which of the following measures would you support?
The survey forms listed eleven Suggested Solutions and Other .
A total of 287 forms were completed and returned. The Suggested
Solutions , in order of frequency of selection follow:
Increase express bus services to UBC 151
Encourage car pooling 121
Curtail UBC growth 86
Extend light rail to UBC 84
Increase campus housing for students and staff 79
Implement more park and rides 74
Have Sea Bus access to UBC 73
Lower transit fees 71
UBC-subsidized bus passes 53
Impose 3-hour parking limit near UBC
(16th Avenue, SW Marine) 40
Widen roads to UBC 11
Under Other , most mention was for
increased parking fees,
reduced spaces,
improvement of bike lanes on all roads.