SUPPORTS ITEM NO. 4
VTC AGENDA
JUNE 12, 1996
ADMINISTRATIVE REPORT
May 30, 1996
TO: Vancouver Traffic Commission
FROM: General Manager of Engineering Services
SUBJECT: Mt. Pleasant Traffic Plan
RECOMMENDATION
A. THAT the following traffic measures be installed on a
temporary basis in conjunction with traffic signals at
Cambie/10th and Quebec/Broadway:
1. Yukon and 10th, closure to eastbound traffic
2. Alberta and 11th, traffic circle
3. Alberta and 12th, westbound No Right Turn 7Ÿ9:30am,
Monday-Friday
4. Columbia and 12th, westbound No Right Turn 7-9:30am,
Monday-Friday
5. Columbia at lane south of Broadway, closure to
southbound traffic
6. Manitoba at lane south of Broadway, closure to
southbound traffic
7. Ontario Street, full closure between 11th and the lane
north of 11th, with a bicycle lane
8. Manitoba and 12th, closure to northbound traffic
9. Quebec and Broadway, closure to southbound traffic
10. Quebec and 10th, closure to westbound traffic
11. Quebec and 11th, 4-way stop signs
12. Quebec and 12th, closure to northbound traffic
13. Columbia and 11th, closure to northbound traffic
14. Allow left turns from westbound Broadway to southbound
Main St, between 7pm and 7am.
15. "Traffic Calmed Area" signs at between six and ten
strategic locations in the area.
B. THAT the pedestrian signal at Manitoba and Broadway be
upgraded to a vehicle signal, and the installation of
pedestrian/vehicular signals proceed at 10th and Cambie, and
at Broadway and Quebec.
C. THAT following the trial period, area residents be
re-surveyed and traffic counts be taken and the results be
reported to the Traffic Commission to determine the permanent
plan.
D. THAT the estimated cost of $158,000, for the following:
i) Traffic calming measures (including the temporary trial
and conversion to permanent)
ii) The upgrade of the traffic signal at Manitoba and
Broadway
iii) Before and after traffic counts, be provided from
Streets Basic Capital Accounts:
12/31/9801/999
Arterial Local Improvements $109,000
13/32/9801/999
Local Area and Other Improvements $32,000
13/01/6846/999 June 1993, Court of Revision
Residential Street Program $17,000
$158,000
E. THAT a midblock curb bulge or alternative paving material be
discussed with the Principal of St. Patrick's school, if the
proposed traffic calming measures do not address the concerns
of the school.
F. THAT upon individual requests from residents, driveways in
the area bounded by Yukon Street, Main Street, 12th Avenue
and Broadway be reviewed and clearance lines be painted where
needed.
G. THAT the Ontario Bicycle route be completed north of 14th
Avenue.
COUNCIL POLICY
It is a long standing Policy to mitigate the impacts of traffic in
neighbourhoods.
Council supports public involvement (through surveys, meetings, and
open houses) to encourage neighbourhood based decisions.
It is a Council Policy to implement traffic calming plans on a trial
basis, to allow changes, before making the measures permanent.
SUMMARY
There have been many recent changes and proposed changes which will
affect traffic in the section of Mt. Pleasant bounded by Yukon, Main,
Broadway, and 12th. A list of these changes is as follows:
o Traffic signals (proposed for safety reasons) at 10th/Cambie and
Quebec/Broadway
o Pedestrian/bicycle signals (proposed for the Ontario Bicycle
Route) at Broadway/Ontario and 12th/Ontario.
o The relocation of the Mountain Equipment Co-op to Broadway.
o Increase in staff and activity at the Federal Building at 10th and
Quebec
o City-wide increases in traffic which affect this area (and other
areas)
The Recommendations of this report list a number of proposed traffic
calming measures (including eight partial closures) which were
supported by a public opinion survey and are intended to address
traffic concerns of residents in the area. The measures will restrict
access to the area, which will reduce any shortcut traffic and will
likely reduce speeds. An undesirable impact of the measures is that
local residents and institutions will be inconvenienced and some
traffic increases may occur on certain streets and lanes. Extensive
traffic counts have been done, to begin to monitor the situation.
PURPOSE
The purpose of this report is to seek approval for the implementation
of a trial traffic calming plan, which will be implemented in
conjunction with traffic signals at Cambie/10th and Quebec/Broadway,
and the completion of the Ontario Bikeway north of 14th Avenue.
BACKGROUND
o In the 1995 Traffic Signal Program, Traffic Commission approved
signals at Quebec and Broadway, and 10th and Cambie, to improve
safety, subject to consultation with the neighbourhood to develop
traffic mitigation measures. These signals will reduce accidents
at these locations; in the past 5 years there have been 50
accidents at 10th/Cambie and 95 accidents at Quebec/Broadway.
Most of these accidents occur when drivers try to cross Broadway
or Cambie, and traffic signals will greatly reduce this problem.
o In April 1995, Council approved the Ontario Bikeway south of 14th
Avenue. The section north of 14th Avenue was approved in
principle, subject to report back on discussions with residents
regarding the proposed signals at Ontario/12th and
Ontario/Broadway.
o The Mountain Equipment Co-op opened in the Spring of 1995, which
increased traffic on some streets in the area. Development interest
in other sites along Broadway continues at a high level.
o An Open House was held on June 22, 1995 to gain initial input on a
number of measures which were developed through consultation with
a committee of residents.
o In March of 1996 a public opinion survey was distributed to
residents and businesses in the area bounded by 12th, Broadway,
Yukon, and Main. The two proposals are shown in Appendix A. This
survey presented a number of additional measures which had not
been discussed at the June Open House. An Information Session was
held on March 27, 1996 at St. Patrick's School to answer any
questions about the survey.
o A proposed A & W drive-through restaurant has been refused in the
unit block of West Broadway (a decision confirmed by the Board of
Variance on May 15, 1996).
DISCUSSION
o Proposed Measures
The proposed measures (see Figure 1) have been developed through a
series of meetings with residents and the Open House in June 1995.
Most of the proposed measures are partial closures at the edge of the
neighbourhood, planned to prevent shortcut traffic. In the initial
plan, a limited number of measures were considered to deal with the
proposed signals and the Mountain Equipment Co-op. Residents support
these measures and have also supported additional measures to limit
traffic. As a result, the proposal has become a powerful plan, which
will have significant impacts on the area.
The benefits of the measures are that shortcut traffic will be
discouraged from using the area and speeds will likely decrease. An
undesirable impact is that the diverters will inconvenience local
residents and cause increased local traffic on some streets due to
altered traffic flow. There could also be increases in some of the
lanes.
Institutions such as the Federal Building (10th and Quebec), St
Patrick's School, and the many churches in the area will have reduced
access. For example, some parents picking up their children at St.
Patrick's will need to alter their travel pattern to and from the
school. However, the effects of the measures will be monitored and
reported back to the Traffic Commission. It should be noted that the
Quebec/Broadway signal will improve the egress from the area, which
will assist the travellers leaving these institutions.
Concerns have been expressed about pick-up and drop-off of students at
St. Patrick's and with the students crossing 11th Avenue
(mid-block)between classes to access the gymnasium and cafeteria. Staff
have recently met with the Principal to discuss these issues. The
Principal of this school has worked with parents and monitors pick-up
and drop-off at the school. Parents have been requested to pick up
students only on the south side of 11th, and not to stop on the north
side, to reduce problems.
Furthermore, observations were conducted and the Principal was asked
for input regarding students crossing 11th Avenue. It was decided that
it would be difficult to provide for all pedestrian movements in this
block; there are two doors on each building and students cross in a
variety of locations and directions (including diagonally). It was
also agreed that the proposed traffic calming measures (particularly
the four-way stops at Quebec and 11th) may help to reduce vehicle
speeds in this area and that further measures such as a midblock bulge
or alternative paving material could be considered after the proposed
measures are tried.
It should be noted that the Employment office in the Federal building
is expected to generate more traffic, since it is planned that this
office will serve a broader catchment area. Area residents and staff
were advised that the Kitsilano office will be closed and this activity
will be transferred to the Mt. Pleasant office.
The Fire Department will be affected by the partial closures on Quebec
Street, since Quebec is a fire route. The Fire Department was
consulted and has not had any objections to these measures. The
temporary barricades will allow quick alterations, if needed, to
improve fire access. Closures, such as the proposed closure of Ontario
Street, are also a concern for the Fire Department since they would use
Ontario to fight any fires in this block. Therefore, access for fire
trucks will need to be maintained. The Fire Department has also been
informed of the other proposed measures in the area and has not
expressed any concerns.
The proposed closures on Columbia and Manitoba at the lane south of
Broadway will cause a traffic increase in this lane south of Broadway.
Traffic counts show that the lane section behind the Mountain Equipment
Coop (between Columbia and Manitoba) is currently much busier than any
other section. The Mountain Equipment Coop has agreed to pay the cost
of speed bumps in this lane. Traffic counts have also been taken in
many other lane sections to monitor traffic changes.
A further measure which is expected to reduce traffic impacts in the
area is to allow left turns after 7pm from westbound Broadway to
southbound Main Street. Broadway is very busy during other times of
the day so this turn can only be permitted after the pm rush hour. (A
westbound left turn flashing arrow was considered but it would create
congestion in the eastbound direction and would likely add to
shortcutting). This change will reduce the number of vehicles that use
neighbourhood streets to access southbound Main Street.
To advise of traffic calming measures, "Traffic Calmed Area" signs have
been tried in other municipalities such as Burnaby and New Westminster
to provide initial notification of traffic calming measures. It is
recommended that between six and ten of these signs be created and
installed at strategic locations on the border of this residential
area, for the six month trial period.
o Parking
The public opinion survey shows that there are many concerns about lack
of parking in the area. There a number of extended
corner clearances along 10th Avenue, and staff plan to remove these
no-parking zones, which will add more than 20 spaces and will help
reduce the parking problem. The added parking will also narrow the
effective width of 10th Avenue, which will be more of a restriction to
traffic. Lower vehicle speeds will result; however, there may be an
increase in sideswipe accidents.
One result of the high parking demand is that some driveways in the
area are sometimes illegally blocked by parked cars. Therefore, it is
recommended that, where there are requests from residents, driveways in
the neighbourhood be reviewed and clearances be painted where needed.
This represents a new service not previously provided by the City, and
could only be extended to other neighbourhoods after due consideration
of the situation, options, and cost.
Another change will be the addition of some 15-minute parking adjacent
to the corner store at 10th and Quebec, to encourage parking turnover.
Furthermore, due to the business generated by the Mountain Equipment
Coop and other stores in the area, parking meters are planned for the
south side of Broadway. This will also increase parking turnover and
should reduce the parking impacts in the neighbourhood. A further
proposal is the installation of a tour-bus zone on the south side of
East Broadway, near the Seoul House Garden Restaurant.
The proposed traffic measures will not have much effect on parking,
except for the proposed closure on Ontario at 11th Avenue, which will
remove six spaces. Although there will be five spaces added nearby on
10th Avenue, this closure will significantly affect the residents who
live adjacent to it. The response within one block of the proposed
closure indicated a close split:
7 In Favour
9 Opposed
However, since there is overall support for the closure (see public
opinion survey section) it is being recommended on a trial basis. The
impacts and input from the adjacent residents will be reviewed further
when decisions are made about alterations to the closure and about
making it permanent.
o Columbia Street
There are concerns that the proposed traffic measures may not address
the traffic impacts on Columbia Street. Two partial closures are
proposed and the survey asks "If the partial closures are not
sufficient, would you support the full closure of Columbia?".
Sixty-three percent of respondents supported implementation of a trial
full closure, if the proposed partial closures do not significantly
reduce traffic volume. Traffic counts will determine if the full
closure should proceed.
A special paving treatment (granitoid) has been approved for Columbia
between 10th Avenue and Broadway. Regardless of the traffic measures
placed on Columbia, residents have expressed
that they would like as much of the street surface as possible restored
in granitoid. Therefore, bollards and planters, rather than landscaped
bulges, are proposed as the devices used to create the diverter or
street closure at the permanent stage. Since this more flexible
treatment will be used, the work on the granitoid can begin since it
would be only slightly disturbed by permanent bollards.
o Ontario Bikeway With all the changes proposed in the area, implementation of the
bikeway north of 14th Avenue has been delayed. To complete the
bikeway, pedestrian signals are needed along Ontario across 12th
Avenue, Broadway, and 2nd Avenue. The proposed mini-park north of 11th
Avenue will also form part of this route, and will include a bicycle
path. The permanent design of this measure is shown on Figure 2.
o Traffic Counts
Twenty-four hour traffic counts have been taken at all entrances and
exits to the neighbourhood. A summary of these counts is shown in
Appendix B. The counts show that the streets get busier as they get
closer to Broadway, and Quebec Street is the busiest residential street
in the area. Follow-up counts will be taken at the same locations to
determine the effects of the closures.
PUBLIC OPINION SURVEY
The March 1996 survey, shown in Appendix A, presented two proposals to
residents. "Proposal A" was made up of measures which would address
impacts from the traffic signals proposed for 10th/Cambie and
Quebec/Broadway, impacts from the Mountain Equipment Coop, and
shortcutters from westbound 12th Avenue.
"Proposal B" was a second plan which included almost all measures from
Proposal A plus a number of additional restrictive measures.
Of 1300 surveys delivered, 223 (17%) were returned, which is a slightly
lower than normal return rate. The results of the survey are as
follows:
Proposal A Yes 131(77%) No 39(23%)
In Favour Opposed Undecided
Yukon and 10th, Partial Closure 126(65%)* 69(35%) 17
Alberta and 11th, Traffic Circle 157(84%) 31(16%) 25
12th and Alberta, No Right Turn 136(82%) 29(18%) 46
12th and Columbia, No Right Turn 134(82%) 30(18%) 47
Columbia at lane south of
Broadway, Partial Closure 133(75%) 44(25%) 33
Manitoba at lane south of
Broadway, Partial Closure 131(74%) 47(26%) 35
Manitoba and Broadway, Signal 148(79%) 39(21%) 25
Ontario and 11th, Traffic Circle 157(84%) 30(16%) 27
Quebec and Broadway,
Partial Closure 128(70%) 54(30%) 30
Quebec and 10th, Partial Closure 116(62%) 70(38%) 25
Quebec and 11th, 4-way stop signs 183(93%) 13(7%) 18
Quebec and 12th, Partial Closure 110(63%) 65(37%) 38
*NOTE: The undecided responses are not included in the percentages
Proposal B Yes 98(56%) No 78(44%)
Alberta and 11th, Diagonal Diverter 88(49%) 91(51%) 36
Columbia and 11th, Partial Closure 100(57%) 76(43%) 38
Manitoba and 12th, Partial Closure 97(54%) 82(46%) 34
Ontario and 11th, Full Closure
(with bike lane) 106(59%) 73(41%) 31
Closure of Columbia Yes 120(63%) No 69(37%)
(NOTE: this measure was presented as an alternative in case the
proposed partial closures do not significantly reduce traffic
on Columbia)
All measures in proposal A were clearly supported in the survey and are
recommended. Proposal B was also supported but not as strongly, and
the diagonal diverter at 11th and Alberta was not supported. The
response within one block was checked and it was found that there were
only three in support and eight opposed to the diagonal diverter.
Therefore, the traffic circle (which was strongly supported) is
recommended instead of the diverter. Since the other measures in
Proposal B have been supported by the survey, they have been
recommended in this report.
fThe survey indicates that many people are concerned about traffic
speed and volume in the neighbourhood (53 people made this comment).
Other common comments are that there is lack of parking (22 people) and
concerns that the proposed measures will cause inconvenience for
residents (23 people).
FINANCIAL IMPLICATIONS
The costs for the various traffic measures and work items are broken
down as follows:
Temporary traffic calming measures
(including signs) $ 25,000
Permanent traffic calming measures $ 87,000
Upgrade the signal at Manitoba and Broadway $ 40,000
Sixty before and after traffic counts $ 6,000
Total $158,000
Funds for this work are available from Streets Basic Capital Accounts
set aside for Arterial Local Improvements, Local Area and Other
Improvements, and from surplus funds following completion of
construction of the June 1993 Court of Revision Residential Street
Program.
The meters on Broadway and sign changes can be done with existing
budgets.
IMPLEMENTATION PLAN
The proposed vehicle signals and traffic diverters will have
significant impacts on traffic in the neighbourhood. Many of the
measures are intended to prevent the traffic signals, which will be
installed on Broadway at Quebec and on Cambie at 10th Avenue, from
causing traffic increases. Therefore, it recommended that the traffic
measures be installed in conjunction with the traffic signals.
Currently, City crews are working on a number of pedestrian signals
near schools, which are high priority. However, these two signals in
Mt. Pleasant will be given a high priority so that the traffic plan can
be installed as soon as possible.
CONCLUSION
There are a number of issues in Mt Pleasant which have been long
standing concerns. One is the amount of traffic on neighbourhood
streets such as 10th Avenue and Quebec Street. The relocation of the
Mountain Equipment Co-op to Broadway has worsened some of these
problems. A further concern has been the difficulty and safety
crossing major streets for pedestrians and for vehicles. More
recently, the Ontario Bicycle route has been installed but is
unfinished north of 14th Avenue. A further concern has been the lack
of resident and visitor parking in the area. The traffic plan detailed
in this report has taken advantage of public input to deal with many of
these concerns. The plan is a powerful one that may have unexpected
impacts, but responding residents have indicated their willingness to
undertake a trial period. Following the six-month trial, monitoring,
and re-survey, the results will be reported to Traffic Commission so
that a permanent plan can be approved.
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