SUPPORTS ITEM NO. 3
T&T COMMITTEE AGENDA
APRIL 22, 1997
ADMINISTRATIVE REPORT
Date: April 10, 1997
Dept. File No. 3602
CC File 5702/5761-1
TO: Standing Committee on Transportation and Traffic
FROM: General Manager of Engineering Services
SUBJECT: 1997 Traffic Signal Program
RECOMMENDATION
THAT Council approve the 1997 Traffic Signal Program, and that the
General Manager of Engineering Services be authorized to install
and modify pedestrian and traffic signals, as described in this
report; and
FURTHER THAT additional annual costs of $28,000, related to ongoing
maintenance, be reflected in future Operating Budgets.
COUNCIL POLICY
Council approved funding levels for traffic signal installations as part
of the 1997-1999 Streets Capital Plan.
A Traffic Signal Program Report recommending new signal installa-tions
and modifications is submitted to Council for approval each year.
Council has indicated an order of priority for transportation that
places the highest priority on pedestrians.
On March 25, 1997, Council approved the Engineering Basic Capital
Budget, including the necessary borrowing authority. That approval
included $1,155,000 for the 1997 Annual Traffic Signal Program and
$2,000,000 for a new traffic signal control system.
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SUMMARY
Council has approved funding as part of the 1997 - 1999 Streets Capital
Plan for the Annual Traffic Signal Program. Funding requests included
in this report account for approximately one-third of the money approved
in the existing Capital Plan. The 1997 Traffic Signal Program is
recommended as follows:
A) Pedestrian-Actuated Signals $ 385,000
A1) 41st Avenue @ Fleming $74,000
A2) 12th Avenue @ Laurel Street $83,000
A3) Broadway @ Larch $71,000
A4) West Boulevard @ 45th Avenue $73,000
A5) King Edward @ Marguerite Street $84,000
B) Full Signals $ 370,000
B1) 41st Avenue @ MacKenzie $89,000
B2) Argyle Street @ 57th Avenue $90,000
B3) Southwest Marine Drive @ Barnard $76,000
B4) 2nd Avenue @ Crowe $80,000
B5) Granville @ Cordova $35,000
C) Signal Modifications $ 400,000
Total 1997 Program $1,155,000
PURPOSE
This report lists the locations recommended for signal installations or
modifications and the reasons for these recommendations.
INTRODUCTION
The City of Vancouver relies on a surface street network to handle its
transportation needs. Therefore, pedestrian, cyclist, transit and
traffic signals are significant traffic management elements in the safe
movement of people and goods. Detailed studies are undertaken each year
by Engineering Services to determine locations that require new or
modified traffic signal controls. Users of the transportation system
such as pedestrians, cyclists, transit vehicles, trucks and automobiles
are considered in these studies. Many locations are reviewed in this
program to provide a comprehensive coverage. Based on this review, a
recommended Traffic Signal Program is prepared.
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Council's top transportation priority is pedestrians, and five of ten
recommended signals are pedestrian signals, two of which are
recommended at existing school-designated crosswalks. Transit customers
and transit vehicles are being aided at many of the recommended signals
and signal improvements. Several of the proposed vehicle signals
address pedestrian safety needs. The remaining signals address safety
concerns related to high volumes of pedestrians and vehicles.
DISCUSSION
A) Pedestrian Signals
Recommended Locations
A1) 41st Avenue at Fleming Street $74,000
Field observations show that few adequate gaps occur for
pedestrians crossing this busy section of 41st Avenue. The
nearest signals to the east and west are at Commercial Drive and
Knight Street respectively. Visibility of the existing
pedestrian crossing is not optimal as it is located at the crest
of a hill. There have been three reported pedestrian accidents
in the past five years. During field studies it was noted that
pedestrian behaviour was cautious, while driver courtesy was
poor. Due to the infrequent crossing opportunities, a
pedestrian signal is recommended.
A2) 12th Avenue at Laurel Street $83,000
The opening of the new building as part of Vancouver General
Hospital complex has increased pedestrian demand at this
location. In the past five years there have been nine
pedestrian related accidents at this location. Gaps in traffic
are created due to the adjacent signals at Willow Street and Oak
Street; however, driver courtesy has been noted as being quite
poor throughout the day. The existing pedestrian overpass at
this location services the old entrance to the hospital from the
parkade. Directional signage has been added to improve the use
of the overpass. As more of the new hospital building is opened
increased pedestrian volumes are expected at this location. It
is recommended that a pedestrian signal be installed to
accommodate increasing numbers of hospital staff, patients, and
visitors.
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A3) West Broadway at Larch Street $71,000
This area has a complement of mixed commercial and residential
which contributes to high pedestrian volumes at this
intersection. Pedestrians also use the existing marked and
signed crosswalk to access the bus stop on the southeast corner.
Larch Street serves as an access route to the Kitsilano
Community Centre and to Kitsilano Secondary School. In the past
five years there have been eight pedestrian accidents. Based
upon the accident history and volume of pedestrians at this
location, a signal is recommended.
A4) West Boulevard at 45th Avenue $73,000
This intersection is one of the few locations to cross east-west
over the CPR Arbutus rail corridor. Existing vehicle volumes
offer few gaps in traffic between the nearest signals at 41st
Avenue and 49th Avenue. A large number of pedestrians, over
one-third being school children, were observed crossing at this
marked school crosswalk. Forty-fifth Avenue has also been
identified as a possible future bicycle route connector.
Therefore, in the long term this signal would help not only
students of Maple Grove Elementary School but also cyclists. A
signal has been requested by residents and the Police School
Safety Patrol. Police observations at this intersection noted
that driver behaviour is extremely poor with no regard to the
"Stop when Occupied sign." In the past five years, there has
been one pedestrian accident.
A5) King Edward at Marguerite Street $84,000
This location was identified as a top priority for a signal by
the Police School Safety Patrol. Police noted a large number of
vehicles passing on the right as pedestrians crossed. Numerous
pedestrian-vehicle conflicts were observed during field
investigations. Little parking demand was noted in the area and
this also allows motorists to pass on the right using the
partially parked curb lane. During the afternoon hours,
congestion caused by eastbound vehicles was noted. A pedestrian
actuated signal is recommended to aid students of Shaughnessy
Elementary School crossing King Edward Avenue.
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A number of other locations were also reviewed for the installation
of pedestrian signals. Included in Appendix A is a list of
potential locations for subsequent signal programs that are not
recommended at this time due to the above priorities. Also included
in Appendix A is a list of locations reviewed which are not
recommended for pedestrian signals at this time but which will
continue to be monitored. For some locations, other measures were
taken to improve conditions. A list of locations to be further
monitored in 1997 is also included.
Individuals and groups who requested to be notified of the Traffic
Commission meeting have been contacted.
B) Full Signals
Recommended Locations
B1) Mackenzie and 41st Avenue $89,000
Traffic is heavy in this busy section of 41st Avenue. A large
proportion of the pedestrians crossing at MacKenzie, over
two-thirds, are destined for the existing bus stops. One
pedestrian accident has been reported in the past five years.
MacKenzie Street, south of 41st Avenue, is a local residential
street. Therefore, a signal at this location would require
traffic mitigation measures to minimize neighbourhood impacts.
West Kerrisdale area residents are actively pursuing an overall
neighbourhood traffic plan, into which this signal would be
incorporated. Signal construction will not begin until an
overall plan has been developed for the neighbourhood. A
separate report will be presented to Council addressing traffic
calming and transportation issues in the West Kerrisdale area.
B2) Argyle and 57th Avenue $90,000
Pedestrian crossings and vehicle access at this location are
quite difficult. Sight lines are limited due to a curve in the
road at this T-intersection. Numerous turning movements also
add to the difficulty and increase concerns related to safety. A
pedestrian crosswalk exists one-half block to the south and has
non-standard overhead pedestrian signage which is scheduled for
upgrading. Instead, this pedestrian crossing would be removed
following construction of a signal. A signal at this location
would provide a higher level of pedestrian crossing control and
assist motorists' access to and from their neighbourhood.
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B3) Southwest Marine Drive & Barnard $76,000
A vehicular signal in this location would improve access for
residents of the Angus Lands area, users of the Industrial area,
and the Montessori Elementary School. In discussions with
residents living along Southwest Marine Drive and in adjacent
neighbourhoods several intersections have been identified as
possible future signal locations. This location would offer a
variety of users increased access. During peak hours the
traffic along Southwest Marine Drive offers few gaps to allow
vehicle movements to and from Barnard Street. Signalizing this
intersection would help to increase the number of gaps in
traffic during peak time along this section of Marine Drive.
B4) 2nd Avenue at Crowe $80,000
This pedestrian crossing is heavily used particularly during
mid-day. The intersection is offset with the north and south
legs acting as separate "T" inter-sections. The west leg of
this intersection has a marked and signed crosswalk. Additional
overhead signage has recently been added to this location.
While pedestrians at this five lane crossing are cautious, some
motorists are reluctant to stop or do not acknowledge
pedestrians attempting to cross. As the False Creek area to the
North redevelops, this signal will further service the
increasing pedestrian and vehicle volumes.
B5) Granville and Cordova $35,000
This signal was originally recommended in the 1986 Traffic
Signal Program but has been delayed by negotiations with the
owner of property on which some of the signal equipment must be
located. Since 1986, construction costs and the scope of the
work have increased and an additional $35,000 is required for
this project.
C) Signal Modifications
C1) Left-Turn Phasing $150,000
The City receives many requests for left-turn flashing arrows at
existing traffic signals. Left-turn arrows which assist transit
vehicles or reinforce designated truck routes are given the
highest priority. They are
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left-turn volumes which cannot clear during gaps in opposing
traffic flow. The performance of intersections which already
have left-turn signalization can be improved by adding detectors
in the left-turn bay so the length of the left-turn phase
responds to the demand. Some intersections being considered for
left-turn phasing additions or modifications are listed in
Appendix D.
C2) Pedestrian Indicators $75,000
Existing signals that do not have pedestrian indicators are
reviewed each year. It is recommended that funding for up to
ten suitable locations at an average cost of $7,500 be
appropriated for 1997.
C3) Minor Signal Modifications $40,000
There are routine modifications required on the present signal
system from time to time. Some examples of the modifications
are:
- adjustment of signal timings in the local controllers;
- visibility improvements of existing signal equipment by
the relocation or addition of signal heads;
- the modification of overhead signs; and
- minor modifications to hardware and software for the
controllers and Central Control System.
This item also includes funding to purchase computer hardware
and software to allow staff to better manage the existing
signal system, utilize database software to inventory
pedestrian and vehicle information, and to handle increasing
requests from the public for traffic related data. Increasing
volumes of design work are being completed by Traffic
Management staff. This design work has increased with the
newly transferred Electrical Technician position from Street
Lighting and Utilities Management to Traffic Management.
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C4) Audible Signals $50,000
Vancouver has more audible traffic signals than any other
Canadian city. A total of ninety-seven locations have been
completed as of the end of 1996. All new pedestrian signals
approved this year will be accompanied by audible signals. In
addition, funding of $50,000 is recommended in this year's
signal program to install audible indicators at existing
signalized intersections. Evaluation and construction will be
according to the proposed guidelines of the Canadian Manual of
Uniform Traffic Control devices. The priority of installation
will be established in consultation with the Special Advisory
Committee on Disability Issues and its related Subcommittee on
Engineering Issues. The Committee has been advised of this
recommendation and supports it.
C5) Miscellaneous
a) Tertiary Heads $85,000
Since 1994, to improve visibility of signal displays a
third signal head has been installed for some vehicle
movements. This improvement has achieved significant
reduction of traffic accidents, at many high-accident
intersections. The City, together with the Insurance
Corporation of B.C., will continue to install tertiary
signal heads at high volume/high accident intersections.
OTHER SIGNAL INSTALLATIONS
Signal installation and modifications may be initiated through
other programs or agencies. Appendix C lists signals which are
being initiated due to private developments. Included in Appendix
E is a list of signal installations and modifications requested by
BC Transit and their status of completion.
Appendix F summarizes additional signal installations or
modifications funded by the City through other projects such as
Greenways and new Bicycle Routes. Additional reports will be
forwarded to Council as the designs of these projects are
completed. These locations may be completed in 1997, depending on
factors such as public consultation and development of
neighbourhood traffic calming plans.
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FINANCIAL IMPLICATIONS
The 1997 Traffic Signal Program cost of $1,155,000 represents roughly
one-third of the money approved in the 1997-1999 Streets Capital Plan.
Funding will be provided for this program from borrowing authority
($1,155,000) as approved in the Engineering Basic Capital Budget.
Future Operating Budgets will be affected by increases in maintenance
costs associated with the addition of new signals, related equipment,
signage, road marking, intersection traffic counts and increased energy
consumption. This year's Signal Program represents roughly a two
percent increase in the plant of the Traffic Signal System. Costs of
$28,000 for this increase in the City's plant will need to be funded in
future Operating Budgets as these signals are installed.
PRIORITIES
Because of the time required to order specialized equipment, limitations
on the rate of installation, and other factors, installation of these
signals will continue throughout 1997 and into 1998. Thus, it is
important to establish priorities for their scheduling. The following
principles should guide this process:
pedestrian and transit signals should be high priority;
school-oriented signals should be installed before the
start of the school year in September, if possible;
signals related to identified safety issues and
neighbourhood concerns should be high priority; and
some signals may need to be coordinated with specific
development processes.
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