ADMINISTRATIVE REPORT
Date: May 28, 1996
Dept. File No.: DL/SJ
TO: Standing Committee on Planning and Environment
FROM: General Manager of Engineering Services and Director of
Community Planning
SUBJECT: Oakridge/Langara Traffic Management Planning
RECOMMENDATION
A. THAT the traffic management and safety measures identified in
the Traffic Management Planning process be approved for
implementation. These include:
* Traffic calming along 45th Avenue between Cambie and
Tisdall, with eight corner bulges, stop signs, pedestrian
crosswalks and the review of a speed table.
* Stop sign infill program for the area bounded by 57th
Avenue, S.W. Marine Drive, Oak Street, and Cambie Street.
* The review of traffic concerns identified by the public
listed in Appendix B and any necessary actions required to
address them.
B. THAT the requested pedestrian and bicycle actuated signal at
57th Avenue and Heather Street be reviewed in the 1997 annual
traffic signal program report.
C. THAT proposed changes to the intersection of Cambie and 59th
Avenue, and Cambie and S.W. Marine Drive be presented to the
neighbourhood for further input and surveys as necessary, with
a detailed report back to the Vancouver Traffic Commission.
D. THAT the vehicular and pedestrian access to the Oakridge
Shopping Centre from 45th Avenue be reviewed for improvements
at the time of their next rezoning application.
COUNCIL POLICY
Council supports a variety of measures to calm traffic in residential
areas.
Council's transportation policy places the highest priority on
pedestrians, bicycles and transit.
Appendix A contains Oakridge/Langara policies relevant to traffic
management, parking, and loading facilities.
SUMMARY
To address the existing traffic concerns in the Oakridge/Langara
Planning Study Area and to assess the potential impact from anticipated
developments, a traffic management planning process was undertaken by
Planning and Engineering Services. Four Open Houses were held to obtain
input from residents, a workshop was held to discuss some key areas of
concern, and two follow-up Open Houses were held for input on suggested
proposals.
Many traffic concerns were identified in the traffic management planning
process. These concerns ranged from very localized and specific such as
a particular sidewalk curb ramp, to broader issues such as traffic along
a stretch of roadway. Appendix B lists all the concerns identified at
the open houses. These have either been addressed or will be reviewed
shortly. Many concerns were raised in the following four areas and
actions are proposed to address them:
1. 45th Avenue between Tisdall and Cambie - eight corner bulges, stop
signs at 45th and Tisdall, a pedestrian crosswalk at Ash and across
the Oakridge Shopping Centre s driveway, and a potential speed
table are proposed to address the speeding concerns, the difficulty
in crossing 45th Avenue and the desire for additional traffic
controls.
2. Heather Street - Stop signs along Heather Street as part of a
stop-sign infill program, consideration of a pedestrian/bike
actuated signal at Heather and 57th, and referrals to the School
Traffic Safety Working Group and the Oakridge/Langara Public
Benefits Strategy are proposed to address the traffic congestion,
safety and speeding concerns, and the lack of pedestrian access
along Heather Street.
3. Cambie and 59th Avenue - further public consultation with a report
back to Traffic Commission is recommended to address the safety
problems at this intersection. Differences in opinion currently
exist as to how best to resolve the problems.
4. Cambie and S.W. Marine Drive - further review and public
consultation with a report back to Traffic Commission is
recommended to address the safety problems at this intersection.
Intersection plans are being reviewed as to how the safety problems
can be best addressed.
The overall traffic impact from anticipated developments was also
assessed by conducting traffic counts in the Oakridge Langara Study Area
and predicting the additional traffic from each development site. This
general analysis shows that traffic from future developments can
reasonably be accommodated on the existing street network. Although
traffic in the neighbourhood will increase, further traffic mitigating
measures can be determined after a detailed traffic analysis is
submitted along with the site specific rezoning application.
PURPOSE
The purpose of this report is to seek Council approval for proposals to
address existing traffic issues in the Oakridge/Langara Planning Study
Area. The report also assesses the overall traffic impact from
anticipated developments in the area.
BACKGROUND
On July 25, 1995, several policy statements regarding the
Oakridge/Langara Planning Study Area were adopted by Council (see
Appendix A). Among these was the need to address current traffic issues
and the mitigation of traffic from new developments through traffic
management planning. It was also recognized that rezoning applicants
are responsible for a detailed traffic impact and management plan
addressing the impact of their development site and responding to this
overall study. A report back to Traffic Commission on traffic
management planning was requested and a $5,000 allocation for expenses
related to the work (eg. traffic counts) was made. The extent of the
Oakridge/Langara Study Area is shown in Figure 1.
In March, 1996, staff began the public consultation phase of this
program in the Oakridge/Langara area by hosting 3 open houses (March
21st, 26th, and 28th). At these open houses, staff listened to and
collected information about the traffic concerns within the area. A
separate open house was also arranged on April 10th, 1996, to hear the
specific concerns of the residents of the George Pearson Centre and
Dogwood Lodge. On Saturday April 27, 1996, a morning workshop was held
to discuss in detail four specific areas of concern (45th Avenue,
Heather Street, Cambie and 59th Avenue, and Cambie and S.W. Marine) to
try to establish some general direction and proposals for further
discussion. Finally, two follow-up open houses were held on May 22nd
and May 23rd in the community to present and obtain feedback regarding
the proposals for Oakridge/Langara Traffic Management Planning. Seven
public meetings were conducted to gain resident input.
DISCUSSION
At the four open houses held during March and April, 1996, residents
expressed a wide range of existing concerns within the area. The
majority of concerns are traffic related, though a few concerns
regarding access within the neighbourhood and to local park areas were
received. These concerns are documented in Appendix B.
SPECIFIC LOCAL CONCERNS
The following are the specific actions being implemented by staff to
address very localized concerns:
- Four-way stop signs at 54th and Heather (completed).
- Speed bumps in the lane west of 6100-6400 Cambie (completed).
- Two-way stop signs at 42nd and Willow.
- Replacement of sidewalk curb ramps at a marked crosswalk on 57th
Avenue west of Cambie to provide safer wheelchair access
(completed).
- Referral of requests for traffic circles, lane lighting, lane
paving, and speed bumps in lanes to the Local Improvement Branch,
Engineering Services.
- Referral to the Park Board and to the Police of issues in their
jurisdiction, such as wheelchair access at the Langara Golf Course
Track and traffic violations.
There are other concerns still being reviewed and the status of these
are also indicated in Appendix B. These outstanding concerns include
the time allocated for pedestrian crossings at signalized intersections,
shortcutting along some streets, and parking restrictions.
AREA CONCERNS
In addition to the localized concerns identified above, staff have
identified four problem areas. These are discussed below.
1. 45th Avenue between Tisdall and Cambie
45th Avenue between Tisdall and Cambie provides an important route for
residents in the area as it is the only access to Cambie Street between
41st and 49th Avenues. As well, 45th Avenue is one of the main
entrances for the Oakridge Shopping Centre. In particular, trucks
servicing the shopping centre use the 45th Avenue entrance to access the
centre s underground loading bays.
Concerns have been raised by residents regarding traffic along 45th
Avenue. Among these are the speed of traffic and the difficulty for
pedestrians crossing at Ash and at Tisdall to access Oakridge Shopping
Centre and Oakridge Public Library.
To address the traffic speed concerns, staff recommend the installation
of eight corner bulges along 45th Avenue to narrow the roadway. The
bulges will also assist pedestrian crossings and improve visibility by
preventing cars from parking too close to the intersection. A speed
table (a portion of the roadway that would be raised to the same height
as the sidewalk to provide a level pedestrian crossing and act as a
speed deterrent for cars) on 45th Avenue just west of Ash was also
discussed as a possibility for slowing traffic while also improving
pedestrian access to Oakridge Shopping Centre. Speed tables are
currently being explored for use along the proposed 37th Avenue
Greenway. Therefore, staff recommend that the speed table be reviewed
following the trials along the proposed Greenway. In the interim, staff
recommend that a marked crosswalk be installed to assist pedestrian
crossings.
Pedestrian access from 45th Avenue into the Oakridge Shopping Centre
site was also identified as needing improvement. It is recommended that
this issue be raised at the time of Oakridge Shopping Centre's next
rezoning. In the interim, a marked pedestrian crosswalk is recommended
across Oakridge Centre's driveway access point from 45th Avenue.
Staff also recommend the installation of three-way stop signs at the
intersection of 45th Avenue and Tisdall Street to improve general
safety.
All the measures recommended for 45th Avenue between Tisdall and Cambie
are shown in Figure 2.
2. Heather Street
Heather Street is another important access route for residents in the
area because it is the only north-south connection from 54th to 59th
Avenues between Oak and Cambie. Residents have expressed concerns
regarding the congestion and speeds along Heather Street. Many of the
congestion concerns on Heather Street occur between 54th and 57th Avenue
due to school-related morning drop-off and afternoon pick-up activities
from Churchill Secondary School and Sir Wilfrid Laurier Elementary
School. The schools have attempted to address the congestion problem in
consultation with the School Traffic Safety Working Group which consists
of representatives from the School Board, Police and Engineering
Services. Due to the high percentage of parents and students wishing to
drop-off and pick-up at similar times, this issue is not easily
resolved. However, the School Traffic Safety Working Group will
continue to work with the schools to ensure that the pick-up and
drop-off activities occur in a safe manner and to encourage students to
walk to school.
To address general traffic safety along Heather Street and in the
neighbourhood south of 57th Avenue, a stop-sign infill program is
proposed. This program will provide stop sign controls at all
intersections bounded by 57th Avenue, S.W. Marine, Oak Street, and
Cambie Street (see Figure 3). These stop signs will be in addition to
the four-way stop sign installed earlier this year at 54th and Heather.
There is also a desire to improve the pedestrian environment of Heather
Street. For example, no sidewalk exists on the east side of Heather
Street between 54th and 57th Avenues and residents have expressed that
it is difficult to cross 57th Avenue at Heather. The improvement of
Heather Street for pedestrians is one subject of the Oakridge/Langara
Public Benefits Strategy which will be reported to Council separately.
However, a pedestrian/bicycle actuated signal at 57th and Heather is
recommended for review in the 1997 Annual Traffic Signal Report.
3. Cambie and 59th Avenue
Cambie at 59th Avenue is often cited by local residents as being
dangerous and an intersection that is generally avoided if possible.
Accident records confirm that an average of 13 traffic accidents per
year occur at this intersection. Due to this relatively high incidence
of accidents, Council approved a traffic signal at this location in the
1995 Traffic Signal Program.
Discussions with some area residents about possible changes to the
intersection of 59th and Cambie reveal differing opinions about how to
address the safety problem. Some residents favour a full traffic signal
at the intersection, while others do not, fearing that traffic volumes
will increase with a full traffic signal. Traffic measures discussed as
possible options include:
1. A right-in-right-out diverter on 59th Avenue west of Cambie;
2. A pedestrian/bicycle actuated signal;
3. A right-out diverter on 59th Avenue east of Cambie;
4. A southbound-to-eastbound left turn bay.
It should be noted that a pedestrian signal on its own would not resolve
the vehicular accident problem. Planning is concerned about the
left-turn-bay option as it may increase traffic on 59th Avenue east of
Cambie Street; furthermore, 59th Avenue is a proposed City greenway.
Several other important issues have been identified which will affect
the decision for any changes at the intersection. They include:
- 59th Avenue is a primary access point for many residents located
east of Cambie.
- A service station exists on the southwest corner and a restaurant
on the southeast corner of the intersection.
- An ambulance station exists on 59th Avenue west of Cambie.
- 59th Avenue is an important access route because it is the only
through east-west street between 49th and S.W. Marine Drive.
Because of the differences of opinions among residents, it is
recommended that possible changes to the intersection of Cambie and 59th
be presented to residents for further input and surveys as necessary,
with a detailed report back to Traffic Commission. Of necessity, the
survey area will be extensive. Figure 4 summarizes all the potential
intersection changes discussed.
4. Cambie and S.W. Marine Drive
The intersection of Cambie and S.W. Marine Drive has been identified as
one of the ten worst signalized intersections for accidents. This is
largely attributable to the conflicts between the eastbound left turns
and westbound through traffic. To reduce these conflicts, the
protected-permissive left turns (cars have a protected left turn with a
green arrow and at other times are permitted to turn when there is a gap
in oncoming traffic) need to be changed to a protected-prohibited left
turn (cars can only turn with the green arrow; all other times the turn
would be prohibited with a red signal). This change would reduce
accidents significantly; however, the left turn lane with the optional
through movement needs to be converted into a dedicated left-turn lane. The accommodation of the eliminated eastbound through movement may
require significant changes to the intersection. The implications of
the changes to the intersection are currently being reviewed. Once the
plans are completed, they will be presented to the public for input and
then reported back to Traffic Commission. Figure 5 illustrates the
proposed changes to the left turn bays at the intersection.
Oakridge/Langara Traffic Counts
Traffic counts at key locations throughout the Oakridge/Langara Study
Area were made to determine the current traffic activities in the
afternoon peak periods. These counts are helpful in assessing the
traffic impact from future developments. Figure 6 summarizes the
existing traffic counts in the Oakridge/Langara area. It also shows the
additional traffic that may result if all potential development sites
are rezoned with more residential units.
The rezoned sites will be responsible for mitigating any traffic impacts
generated from their development site. Area residents are concerned
about the cumulative traffic impact from all rezoned sites. Figure 6
indicates possible future traffic volumes in the area when all rezoned
sites are developed. Although the existing street network has the
capacity to accommodate the future traffic volumes, further traffic
mitigation measures or improvements may be required. These are best
determined when detailed traffic consultant studies are submitted along
with site specific rezoning applications. It is worth noting that the
existing traffic counts along some streets are lower than what existed
prior to the closure of the Oakridge Police Sub-station, the Oakherst
Hospital, and the Orion Care Facility.
FUNDING
Engineering Services will be funding the majority of the improvements
identified in this report with the exception of the corner bulges and
speed table on 45th Avenue. The Engineering funds will be from existing
capital budgets or requested in future budgets as necessary. Funds for
the 45th Avenue improvements will be requested from nearby rezoning
applicants as a condition of rezoning.
As mentioned earlier, Heather Street pedestrian improvements will be the
subject of a separate report to Council.
CONCLUSION
After a series of Public Open Houses, many of the existing traffic
concerns in the Oakridge/Langara Study Area have been identified. All
concerns will be reviewed and some have already been addressed. Four
areas (45th Avenue between Tisdall and Cambie, Heather Street, Cambie
and 59th Avenue and Cambie and S.W. Marine) have been shown to be of
particular concerns to many residents. To address these areas of
concern, a number of recommendations are made to resolve the problem or
work towards resolving the problem in consultation with area residents.
Specifically, reports back to Traffic Commission regarding the
intersections of Cambie and 59th Avenue and Cambie and S.W. Marine Drive
are recommended. All traffic measures implemented as a result of this
Traffic Management Planning process will be monitored for their
effectiveness and any adjustments will be made as necessary.
Further traffic mitigation by new developments is best determined after
a rezoning application and a traffic impact analysis is submitted.
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