REPORT TO COUNCIL
SPECIAL MEETING OF THE
STANDING COMMITTEE OF COUNCIL
ON TRANSPORTATION AND TRAFFIC
APRIL 9, AND MAY 14, 1997
A Special Meeting of the Standing Committee of Council on
Transportation and Traffic was held on Wednesday, April 9, and
Wednesday, May 14, 1997, Third Floor, City Hall.
(April 9, 1997)
PRESENT: Councillor Gordon Price (Chair)
Mayor Philip Owen
Councillor Don Bellamy
Councillor Jennifer Clarke
Councillor Alan Herbert
Councillor Daniel Lee
Councillor Don Lee
Councillor George Puil
Councillor Sam Sullivan
ABSENT: Councillor Nancy A Chiavario (Civic Business)
Councillor Lynne Kennedy (Sick Leave)
CITY MANAGER'S
OFFICE: Dave Rudberg, General Manager of
Engineering Services
CLERK TO THE
COMMITTEE: Denise Salmon
(May 14, 1997)
PRESENT: Councillor Gordon Price (Chair)
Mayor Philip Owen
Councillor Nancy A. Chiavario
Councillor Jennifer Clarke
Councillor Alan Herbert
Councillor Daniel Lee
Councillor Don Lee
Councillor George Puil
Councillor Sam Sullivan
ABSENT: Councillor Don Bellamy (Leave of Absence)
Councillor Lynne Kennedy (Civic Business)
CLERK TO THE
COMMITTEE: Denise Salmon
RECOMMENDATION
1. Proposed Traffic Plan for
Burrard and Cypress Streets File:5751-1
APRIL 9, 1997
The Committee had before it an Administrative Report dated March
27, 1997, (on file) in which the General Manager of Engineering
Services, in consultation with the Director of City Plans and the
Transportation Planning Team addressed a number of neighbourhood issues
(east and west of Burrard Street) which are related to problems with the
arterial system. The General Manager of Engineering Services
recommended approval of the following recommendations A - G and
submitted items H, I, and J for consideration. The General Manager of
Community Services recommended approval of a partial program indicated
by C, F, H and J.
A. THAT Burrard Street be constructed in accordance with this
report (geometric YD 632), to provide the following:
Cornwall - a northbound left-turn bay and an
eastbound bicycle lane,
1st Avenue - northbound and southbound left-turn bays
and bicycle lanes on Burrard from Cornwall
to 1st Avenue, and a traffic signal
upgrade,
2nd Avenue - southbound left-turn bay,
4th Avenue - northbound left-turn bay,
with funding of $1,625,000 for the bays, bicycle lanes, and
signal changes at Cornwall, 1st, and 2nd from existing Streets
Capital funds, and funding of $275,000 for the bay at 4th to
be included in the 1998 Streets Basic Capital Budget.
B. THAT bicycle lanes be painted on Burrard from Cornwall to 1st
Avenue (with the reduction of one southbound vehicle lane) and
on the Cornwall approach to the bridge, bicycle stencils be
painted on 1st Avenue to link Burrard to the Cypress Bicycle
Route, and wide curb lanes for bicycles be installed where
other curbs are being reconstructed.
C. THAT the pedestrian signal at 1st and Burrard be upgraded to a
full signal, with the capability to upgrade further with north
and southbound left-turn arrows.
D. THAT the Manager of Real Estate Services be authorized to
conclude required property negotiations for report back to
Council.
E. THAT the Streets Operating Budget be increased by $6,000 per
year to pay for maintenance of landscaping in the medians.
F. THAT following a decision on the proposals herein, the area be
resurveyed to determine the need for further measures to
reduce traffic on Cypress Street, for report back to
Committee.
G. THAT staff review and report back on building lines on Burrard
Street from 1st Avenue to 12th Avenue to provide bicycle
lanes.
CONSIDERATION
H. THAT only the turn bays at Cornwall and 4th, and the signal
upgrade at 1st proceed at this time with funding of $690,000
from existing Streets Capital funds, and the situation be
monitored to determine if further changes are still needed;
I. THAT left turns be prohibited at 1st, 2nd and 3rd;
J. THAT bicycle lanes be painted on Burrard from Cornwall to 1st
Avenue (with the reduction of one southbound vehicle lane) and
on the Cornwall approach to the bridge, and bicycle stencils
be painted on 1st Avenue to link Burrard to the Cypress
Bicycle Route.
Ian Adam, Assistant City Engineer, Transportation, provided
background on the major issues that have led to this report including
outstanding items from the Kitsilano Traffic, Cycling and Parking Plan,
neighbourhood concerns with Cypress Street traffic volumes and speed, as
well as bicycle and truck access issues.
Mark Zaborniak, Engineering Services, highlighted the Cypress
Street traffic situation, with note the key recommendation is for the
northbound left-turn bay at Burrard and Cornwall. He advised 70
businesses now generate traffic on 1st Avenue, and to the east Molson s
Brewery has expanded, resulting in more truck traffic. Bicycle
connections to improve south side approaches to the Burrard Bridge and
connections to the Seaside and Cypress bicycle routes were also
discussed.
In response to a question on the allocation of a full lane for
cyclists from Cornwall to 1st Avenue, Ian Adam noted this lane is unique
in that it terminates at 1st Avenue. He also noted not constructing the
southbound left-turn bay at 2nd Avenue would not significantly reduce
the project's budget, as the major cost was for street widening
necessary for 1st Avenue. Discussion followed on the difference between
the proposed intersection at Cornwall and Burrard and a T-intersection.
The T-intersection, as set out in the City s draft Transportation Plan,
would require a major rearrangement of the intersection, although it
would provide for increased green space and easier pedestrian crossing
from the Bridge onto Burrard. It was also noted the proposed left-turn
bay at Burrard and Cornwall would solve access problems to Kits Point,
but not resolve the Cypress neighbourhood shortcutting issue.
Peter Judd, Transportation Planning Team, advised full details were
not available for the T-intersection at this time. It would be
appropriate to consider this option in the future, along with discussion
on the Burrard Bridge. He added, some of the proposals before Council
this day are not consistent with the City s draft Transportation Plan.
He focused primarily on improved livability for Cypress Street
residents, and secondly the issue of safety, with note the report offers
no improvements for transit nor the pedestrian environment. Mr. Judd
further pointed out ICBC reports indicate left-turn bays encourage
traffic onto local streets, at increased speeds. He recommended only
the left-turn bay at Cornwall and Burrard be constructed, before any
further changes are made to facilitate auto movement onto arterial
streets. He further suggested a full signal at 1st Avenue, rather than
road widening, to improve safety.
Brian Riera, Planning Department, noted his department shares the
access and safety concerns noted by Peter Judd. Support was given for
the left-turn bays at Cornwall and 4th Avenue, and the upgrading of the
light at 1st Avenue, which would solve safety and access problems for
Kits Point. He advised turn bays at 1st and 2nd Avenue could negate the
advantages achieved by the foregoing, and still result in shortcutting
thru the Cypress neighbourhood. It was also added the proposed road
widening complicates an already bad pedestrian environment. A painted
bike lane from Burrard and Cornwall without road widening was also
supported.
Council discussed various access options to Granville Island and
businesses located east of Burrard. In addition, a full signal upgrade
and left-turn arrow at 1st Avenue was also discussed, however, staff
advised a bay would still be required to ensure those in the lane would
be able to turn left.
John Wright, Interim Chair, Bicycle Advisory Committee, read a poem
by T.S. Eliot (on file). He advised it would be detrimental for
cyclists, after merging with southbound traffic at the end of the
bridge, to do so again at the end of the dedicated bike lane at 1st
Avenue. The need to monitor the City s first dedicated bicycle lane for
potential problems was highlighted, and he stressed the need for a
longer initial test route. Council was urged to act on the
Transportation Plan now and provide a normalized T-intersection at
Cornwall to allow pedestrians and cyclists safe access to the bridge.
Richard Benmore, resident, urged Council to complete the left-turn
bays on Burrard at 1st and consider stop signs on Cypress Street, as
originally set out in Kitsilano Traffic, Cycling and Parking Plan and
assess results before proceeding further. He pointed out no resolution
is provided for the north side of Cornwall and Kits Point, and suggested
traffic would divert down Chestnut to access Vanier Park.
Bev Ballantyne, resident, (brief filed) opposed the construction of
left-turn bays, and suggested the money instead be invested in a
pedestrian friendly T-intersection at Cornwall with a delayed green
light. In reference to safety, she advised none of the intersections
listed in the Administrative Report were in the City s top 25" worst
list, and added photo radar has been shown to reduce accident rates by
30%. Upgrading the road system is not the solution to traffic problems.
Transit will be slowed down and pedestrian crossing distances increased.
Don Buchanan, Better Environmentally Sound Transportation, (brief
filed) noted Council has lost site of the big picture and the potential
for Burrard to be a great street, i.e. CityPlan, the draft
Transportation Plan, and the Kitsilano Traffic, Cycling and Parking
Plan. He urged no increase in the road system, but rather provide
alternatives within the existing system. He favoured the one block bike
lane from Cypress to 1st as a symbolic move.
John Whistler, Past Chair, Bicycle Advisory Committee, (brief
filed) supported the recommendations of the General Manager of Community
Services. Although his preference would be a T-intersection at Burrard
and Cornwall, he was not opposed to this left hand turn bay, with other
improvements to follow as required. Speed is the key issue at Burrard
and Cornwall; if property is expropriated for road widening, increased
vehicle speed and more accidents could result. He also urged Council to
think further on the precedent set with the proposed bike lane and
suggested hybrid bike lanes wherein the curb lane is painted with
symbols which indicate a shared road space. Although he did recognize
this would be more
suitable to intermediate cyclists, not family groups, he stressed a
broader vision was needed for Vancouver's first dedicated bike lane.
Liz Haan, S.W. Marine Drive Ratepayers Association, (brief filed)
supported recommendations in the report aligned with City Plan and Draft
Transportation Plan, the others being too costly to justify. She
suggested the addition of four left-turn bays, three with advance green
lights, along a five-block stretch of Burrard Street, would greatly
increase traffic volumes to adjacent residential streets. Ms. Haan did
support a left-turn bay at Burrard and Cornwall with a normalized
T-intersection as set out in the Draft Transportation Plan, which would
benefit pedestrians, local residents, cyclists and motorists. She also
supported the advance left-turn, northbound on Burrard to 4th Avenue.
She further noted bicycle lanes should be implemented without curb
changes or property acquisition, and traffic calming along Cypress
should proceed.
Helmut Krutz, resident, (brief filed) advised the left-turn bays on
Burrard at 1st (with full pedestrian light) and 4th and a T-intersection
as set out in the Draft Transportation Plan for Cornwall and Burrard are
all necessary, and once installed would greatly reduce the need for
additional bays. He also noted a bike lane already exists on the west
side of Burrard between Cornwall and 1st on the sidewalk and suggested
additional improvements for cyclists. The Chair requested Mr. Krutz
provide staff with further details.
* * * * *
The Committee recessed at approximately 10:10 p.m.
to reconvene at 7:30 p.m. on Wednesday, May 14, 1997.
* * * * *
MAY 14, 1997
The Committee reconvened, with Councillor Price in the chair, to
hear the remaining 14 speakers on the Proposed Traffic Plan for Burrard
and Cypress Streets.
The Committee had before it an Supplemental Administrative Report
dated April 30, 1997, (on file) in which the General Manager of
Engineering Services, as consideration Item K, offered an alternative
design for Burrard Street between 1st and 3rd Avenues as follows:
K. THAT the work on Burrard from 1st to 3rd be done with minimum
(3.7m) curb-lane width, to reduce pavement width, and property
and construction costs by $170,000.
Theresa Thompson, Cypress Area Residents Association, spoke to
recommendations A, B and C contained in the Administrative Report dated
March 27, 1997. Her Association favoured the northbound left-turn bay
and eastbound bicycle lane at Cornwall. In addition, support was
indicated for a T-intersection at Cornwall and Burrard, which would slow
vehicular speed, and thereby reduce accidents. Painted bicycle lanes
where favoured on Burrard from Cornwall to 1st, with no right-of-way
expansion or widening of curb lanes. The northbound and southbound
left-turn bays at 1st and southbound left-turn bay at 2nd Avenue were
not supported. Upgrade to a full signal at 1st and Burrard was opposed
as this would lead to more traffic shortcutting west. In conclusion Ms.
Thompson advised the foregoing would allow for necessary arterial to
arterial connections, reduce expenditures, and allow for a staged
approach to further construction.
In response to questions from Council staff advised on traffic
patterns and destinations of vehicles entering the area west of Burrard.
Al McKinnon, Cypress Area Residents Association, advised tour
buses, and vehicles transporting boats to Vanier Park create additional
traffic concerns for the neighbourhood.
Ian Douglas, Cypress Area Residents Association, commented on
Recommendations F and G of the March 27th Administrative Report. The
Association approved of the plan to resurvey the area, following Council
decision, to determine the need for further measures to reduce traffic
on Cypress. He advised of support for a bike lane from 1st to 12th
Avenue as long as no property acquisition occurs, as this would allow
for curb lane widening and increased traffic speed.
Joey Moore, Cypress Area Residents Association, spoke on behalf of
the residents to Consideration items H, I, and J contained in the March
27th report and K (contained in the Supplemental Administrative Report
dated April 30, 1997). Turn bays at Cornwall and 4th were supported.
However the 1st Avenue signal upgrade was opposed pending evaluation of
the Cornwall and 4th Avenue upgrades. Left turns should be prohibited
at 1st, 2nd and 3rd. The bike lane from Cornwall to 1st was favoured,
without curb widening at Cornwall and Burrard. Consideration item K was
not supported. He concluded Council should approve the proposed changes
at 4th and Cornwall at Burrard, in addition to including cyclists on the
existing roadway. Saved monies to be directed toward more necessary
transportation projects such as dangerous intersections in other areas
of the city. Discussion followed on the wording of the public opinion survey
distributed to residents and businesses between 5th, Anderson, Arbutus
and False Creek. Staff noted the survey was prepared in collaboration
with Cypress Street residents.
Gayle Seaman, Cypress Area Residents Association, (brief filed)
advised the arterial T-intersection connection from Burrard onto
Cornwall is essential prior to traffic calming on Cypress. The proposed
left-turn bay from northbound Burrard to westbound 4th Avenue would
avoid neighbourhood shortcutting. She also suggested lowering the speed
limit on
Burrard and the Bridge and noted Council's own stated position of
priority first to pedestrians, bicycles, and public transit before
automobiles.
Guy Palmer, (brief filed) advised of his support for Engineering's
recommendations, including the southbound left turn bays at 1st and 2nd
Avenues. He noted the importance of moving traffic through the False
Creek basin, and suggested the eastbound corridor, starting from Burrard
should proceed through 2nd Avenue at Anderson, along Lamey's Mill Road,
Charleson, Moberley, and Commodore, to link with 1st Avenue, and Main
Street. Mr. Palmer further noted the expense of the project is
irrelevant, as monies have already been approved through the city's
Capital Plan.
Charles Brown, False Creek South Neighbourhood Association, (brief
filed), advised the public opinion survey was badly worded. It dealt
only with bays at 1st, 2nd and 3rd Avenues, to which the Association is
opposed, as this would create serious traffic problems for Cypress area
residents to the west and False Creek residents to the east. Northbound
bays at 4th and Cornwall were seen as a positive way to alleviate safety
concerns. A left-turn signal, in evening rush hour, was also suggested
for 4th Avenue southbound. Mr. Brown suggested the City determine
Molson's future plans prior to installing traffic controls on 1st
Avenue.
Maureen Holley, Cypress Street Residents Association, supported the
northbound left-turn bays at both Cornwall and 4th Avenue. She advised,
as stated by both ICBC and the Police, speed is the number one factor
causing accidents along this section of Burrard Street. Ms. Holley
noted a T-intersection would assist in slowing traffic at Cornwall and
also suggested those utilizing the businesses west of Burrard generally
come from Kitsilano and Kerrisdale. She concluded construction of
additional left turn bays would destroy the adjacent residential
neighbourhoods as well as Burrard's linden trees.
Michael Coombes noted staff's recommendations fail to address a
long-term solution for potential future traffic expected from UBC,
Arbutus Lands, and new development in the Southeast False Creek lands.
Adequate parking should be required for all future area developments,
with specific reference made to the 5th Avenue Cinemas' impact on the
adjacent neighbourhood. He did not support left-turn bays at 1st, 2nd
or 3rd Avenues, and suggested money allocated for their construction be
redirected toward a tramway.
Lynn Kent, Kits Point Residents Association, stressed the impact
the traffic proposal would have on Chestnut Street in Kits Point, and
the need to consider traffic calming options for this area in tandem
with the proposed traffic plan. She supported the left-turn bay at
Burrard and Cornwall and suggested the T-intersection be considered
further. It was also noted the residents are working with City staff on
a short-term plan to address summer traffic, and various options, with
appropriate funding, are being considered for long-term
solutions to the neighbourhood's mounting traffic problems.
Council discussion ensued on the potential of the T-intersection at
Cornwall and Burrard, with note if this configuration slows or stops too
much traffic, neighbourhood shortcutting could result, dependent on its
design and number of vehicles that can be accommodated when queuing for
a left turn.
Guy Wera, suggested Cypress be converted into an exclusive one-way,
downhill bike lane from 4th Avenue, with an arrow facilitating access
onto Cornwall. He also suggested automobile lanes over the Burrard
Bridge be reduced from 3 to 2 to allow for a direct bike route Downtown.
He was opposed to any left-turn bays, with note this would increase car
traffic in the Cypress neighbourhood. A reduction in vehicle speed on
bikeways was also recommended.
The Chair called on Council for additional information required
prior to a decision on this matter, which will go before Council on June
17, 1997, as an Unfinished Business item. Staff was requested to:
Evaluate the Burrard/Cornwall T-intersection, including the
expected queuing demand and capacity
Assess expected turning movements along Burrard at 1st, 2nd and 3rd
Avenues
Assess current impact, on adjacent neighbourhood, of truck traffic
turning east on Burrard and impact of light at 1st Avenue
Clarification on comments by John Whistler contained in his letter
dated May 12, 1997,(on file) responding to Consideration item K of
the Supplemental Administrative Report dated April 30, 1997
regarding curb-lane widths
Estimate money to be spent on proposed left-turn bay at Cornwall
which would not contribute to a later T-intersection
The following motion by Councillor Sullivan was put and carried.
The Committee, therefore,
RECOMMENDED
THAT this whole matter be referred to the Council meeting of June
17, 1997.
- CARRIED UNANIMOUSLY
* * * * *
The Committee adjourned at 10:00 p.m.