Agenda Index City of Vancouver

ADMINISTRATIVE REPORT

TO: Standing Committee on Planning and Environment

FROM: Director of Community Planning and

SUBJECT: Development of the Ridgeway Greenway/Bikeway - West Extension

RECOMMENDATION

CONSIDERATION

OR

GENERAL MANAGER'S COMMENTS

COUNCIL POLICY

On July 18, 1995, Council adopted the Vancouver Greenways Plan.
On May 27, 1997, Council approved the Vancouver Transportation Plan.

SUMMARY AND PURPOSE

The purpose of this report is to obtain Council approval for the construction and maintenance of the Ridgeway west extension, and the additional traffic calming measures, as outlined in this report. The traffic calming measures implement a recommendation of the Transportation Plan related to the status of Quesnel Drive.

Greenways are green routes through the city for pedestrians and cyclists. In 1995, Council adopted the Vancouver Greenways Plan and identified the Ridgeway as the first of fourteen city greenways to be constructed. When complete the Ridgeway will follow the ridge or high point of the city and connect Pacific Spirit Park and Central Park in Burnaby.

The Ridgeway west extension crosses the city from West 37th Avenue and Granville Street to West 8th Avenue and Blanca Street. The proposed plan focuses on improving pedestrian and cyclist safety, calming traffic, and adding trees (without limiting views), street lighting, and greenway/bikeway signage. A comprehensive public consultation process including a survey was undertaken and the plan is within the funding parameters of the Greenways Program.

The route was divided into seven sub-areas, and based on the survey results, staff are recommending approval of the route and the changes proposed for sub-areas 1, 2, 4, 5, 6 and 7. In response to residents' concerns in sub-area 4 staff have agreed to monitor traffic volumes on Valdez and Galiano Roads, and West 22nd and West 23rd Avenues (east of Blenheim Street), and report back six months after the greenway/bikeway and off-greenway changes have been installed. Also, in response to residents' concerns, two options for sub-area 3 are put forward for Council's consideration. The first option instructs staff to undertake a public process on the six alternative routes described in this report and report back. The second option approves the route location, changes and funding as proposed.

BACKGROUND

In July 1995, Council adopted the Vancouver Greenways Plan. Greenways are green routes through the city for pedestrians and cyclists. Fourteen city greenway routes are proposed, the routes cross the city and follow the waterfront linking important destinations such as parks, shopping areas and community centres. Generally, greenways are located on quiet streets where vehicles and bicycles share the road, and pedestrians use the sidewalks. Pedestrian and cyclist safety features and amenities, and traffic calming changes are incorporated into the routes.

The Ridgeway, when complete, will provide a continuous connection, following the high point or ridge of the city, between Pacific Spirt Park and Central Park in Burnaby. This route is being developed in four phases: phase 1, the pilot project, on 37th Avenue between Granville and Knight Streets, is complete; phase 2, between Knight Street and Victoria Drive is under construction; phase 3, the Ridgeway west extension, between Granville and Blanca Streets is the subject of this report; and phase 4, between Victoria Drive and Boundary Road, is in the planning stage.

DISCUSSION

The Ridgeway west extension follows the ridge line of the city from West 37th Avenue and Granville Street to West 8th Avenue and Blanca Street. The route provides users with the opportunity to enjoy a number of spectacular viewpoints and travel on beautiful tree-lined residential streets. An overview of the public process, the proposed plan, and residents' concerns are presented in the following sub-sections.

1. Public Review Process

A three-phase public process was conducted. In the first phase, three public meetings were held to provide information on the Greenways and Bikeways Programs, to outline the proposed Ridgeway west extension, and to solicit ideas and comments. Over 4000 invitations were delivered to residents approximately within a block and a half of the proposed route, and to absentee owners. The meetings were advertised in the local newspaper, and six information signs were installed at various points along the route. Many of the ideas and suggestions received from the public were incorporated into the proposed plan.

In addition to the introductory meetings, one workshop was held with residents and absentee owners of the neighbourhood approximately bounded by 16th and 30th Avenues, and Puget Drive and Blenheim Street. The purpose of this workshop was to develop the off-greenway changes designed to implement a recommendation in the Transportation Plan (Action R-9) to reclassify Quesnel Drive between King Edward Avenue and West 16th Avenue from a secondary arterial street to a neighbourhood collector street. Following the workshop, a series of informal meetings were held with residents of Quesnel Drive, between King Edward Avenue and Blenheim Street, to further develop the changes.

In the second phase of the public process, two open houses were held to enable the public to review and comment on the proposed plan. Invitations were delivered to residents and absentee owners and the meetings were advertised in the local paper. The comments received were generally in support of the Ridgeway west extension plan.

Finally, in the third phase, surveys were distributed to residents within a block and a half of the proposed route, and to absentee owners. The purpose of the survey was to gauge the support for the proposed changes. The route was divided into seven sub-areas, and a different survey was compiled for each, giving residents and property owners the opportunity to respond to specific measures proposed for their area. Copies of the surveys are on file in the City Clerk's office.

A total of 4629 surveys were delivered, and 963 were returned (21% return rate). The survey results indicate strong support for the Greenways and Bikeways programs, and general support for the majority of the proposed changes. Please refer to Appendix A for a summary of the survey results.

2. Ridgeway West Extension Plan

The proposed plan focused on improving pedestrian and cyclist safety and calming traffic. The proposed changes include the installation of pedestrian and cyclist activated signals, corner bulges, traffic circles, central medians, realigned intersections, right-in and right-out diverters, and partial road closures. Other proposed greenway enhancements include planting additional trees (except in view sensitive areas), infilling street lighting, and installing greenway/bikeway signage. For a map of the Ridgeway route and the locations and descriptions of the proposed changes please refer to Appendix B.

In the area between King Edward and 16th Avenues and Blenheim Street and Puget Drive, changes are proposed to implement the reclassification of Quesnel Drive between King Edward Avenue and West 16th Avenue from a secondary arterial street to a neighbourhood collector street as recommended in the Transportation Plan (Action R-9). The changes include the realignment of four intersections off the greenway, and the additional of stop signs at the uncontrolled intersections in the area.

The survey results indicate that the public supports twenty-seven of the thirty-one proposed greenway/bikeway changes, and the four proposed off-greenway changes. Staff recommend proceeding with these changes. One change, the realignment of the intersection at Quesnel Drive, MacKenzie Street, and West 27th Avenue, received limited support. At this location Quesnel Drive is a bus and truck route, and the existing intersection is large and open. The realignment improves pedestrian and cyclist safety, and incorporates the one-way system proposed by the adjacent residents. Therefore, staff recommend proceeding with this change. The three changes that were not supported by the public and that staff do not recommend proceeding with are, the plaza at West 8th Avenue and Discovery Street, and the two partial street closures on Discovery Street north and south of West 10th Avenue.

In accordance with Council policy, the four proposed traffic diverting changes will be installed on a trial basis. These changes include:

- the right-in/right-out diverter at Granville Street and West 37th Avenue;
- the one-way street and realigned intersection at Quesnel Drive, MacKenzie Street and West 27th Avenue;
- the right-in/right-out diverter at Quesnel Drive north of Kind Edward Avenue; and
- the central median at Dunbar Street and West 18th Avenue.

After the changes have been in place for six months, adjacent residents and property owners will be surveyed to gauge the support for the changes, and staff will report back if necessary.

Please note residents in sub-area 3 do not support the route as proposed, and their concerns are presented in the following section of the report. If Council instructs staff to undertake a public process on the alternative routes through this sub-area, the four changes within sub-area 3 would be on hold pending the conclusion of the review and report back. The four changes are the realignment of the intersection at Puget Drive, Narvaez Drive and West 31st Avenue, the asphalt sidewalk on the east side of MacDonald Street between West 29th and West 30th Avenues, the realignment of the intersection at Quesnel Drive, MacKenzie Street and West 27th Avenue, and the central median on Quesnel Drive to the south of King Edward Avenue.

3. Residents' Concerns

In sub-area 6, Camosun Street to West 10th Avenue, a section of the route is located on West 15th Avenue, between Camosun and Discovery Streets. Some residents of West 15th Avenue object to the location of the route and suggest West 16th Avenue as an alternative. For a copy of the staff response letter please see Appendix C. West 16th Avenue is a busy street and where possible greenways are located on quiet residential streets. To reduce the impact of the greenway in this area no changes other than directional signage are proposed. The long term plan for this section is to locate the greenway on the city owned right-of-way to the south of Queen Elizabeth Elementary School, adjacent to Pacific Spirit Park. When complete this will be the primary route between Camosun and Discovery Streets. Therefore, staff do not recommend relocating this section of the route.

In sub-area 4, King Edward Avenue to Dunbar Street, one resident is requesting the construction of two additional traffic calming changes. The two changes are the partial closure of Valdez Road to westbound traffic at Puget Drive ($32,000), and the closure of West 22nd Avenue between Balaclava Street and Quesnel Drive ($16,000). The resident completed a survey and distributed the completed survey to an unknown number of homes inside and outside the survey area. Fifty copies of the completed survey were received. For

a copy of the completed survey and accompanying letter and map, please refer to Appendix D. Staff from both the Greenways and Neighbourhood Transportation Branches met with residents on Quesnel Drive a number of times and discussed this issue. In the opinion of staff, it is unlikely that traffic will divert in the way described because a more direct route exists along Quesnel Drive. Staff agreed to monitor the traffic along Valdez and Galiano Roads and West 22nd and West 23rd Avenues (east of Blenheim Street), and report back six months after the greenway/bikeway and off-greenway changes have been installed in sub-area 4.

In sub-area 3, Puget Drive to King Edward Avenue, the residents on Elm Street and West 30th Avenue would prefer that the route be located elsewhere. They are concerned about increases in noise, litter and crime, and decreases in property value and quality of life resulting from the Ridgeway. The residents have submitted four petitions to the City opposing the route location. For copies of the petitions and the response letters please see Appendix E.

The residents also put forward two alternative route suggestions; first, relocating the route through sub-areas 2, 3, and 4, and second, relocating the route through sub-area 3. In response to these concerns, staff reviewed the alternatives available to ensure a continuous route along the Ridgeway. The survey results, and the comments received at the public meetings, indicate that residents in sub-areas 2 and 4 support the proposed changes. Therefore, staff do not recommend reviewing route alternatives outside of sub-area 3. Within sub-area 3, between sub-area 2 at the intersection of Puget Drive, Narvaez Drive and West 31st Avenue, and sub-area 4 at the intersection of Quesnel Drive and King Edward Avenue, there are six alternative routes.

The six alternative routes are described below. Please refer to Figure 1 for a map of the routes. For a review of the alternative routes please see Appendix F.

Figure 1

Staff note that while the originally proposed route best meets the greenway/bikeway objectives, alternative routes are available through sub-area 3. Five of the routes were not previously reviewed by the public and would require discussion with area residents. Should Council decide to consider the alternative routes staff will undertake a public process and report back.

Route selection involves balancing a number of factors including variety, directness, ease of use, character, uniqueness and proximity to amenities. The Ridgeway follows the ridge or high point, providing pedestrians and recreational cyclists with the opportunity to enjoy a number of spectacular views, and travel through unique neighbourhoods on quiet streets. The experience gained from the pilot project does not suggest that increasing the numbers of pedestrians and cyclists in an area adversely affects property values or quality of life. Comments received from the general public support the route as proposed.

ENVIRONMENTAL IMPLICATIONS

Greenways and Bikeways benefit the environment by enhancing the opportunities to walk and cycle in the city. In addition, the amount and diversity of the plant material installed along the greenway routes increases oxygen production, reduces rain-water run-off, and provides bird habitat.

SOCIAL IMPLICATIONS

Greenways and Bikeways contribute positively to our society through the provision of increased opportunities for active and passive recreation.

FINANCIAL IMPLICATIONS

In order to optimize funding and provide a project coordinated with other City departments, a variety of City resources have been used. For example, some street improvements have been pursued through the local improvement process; street tree infilling will be done through the Park Board's regular street tree program; and street lighting upgrades will be cost shared between the Street Lighting Infill Program and Greenways. The following table summarizes the funding sources proposed.

RIDGEWAY WEST EXTENSION BUDGET

Requested Funding

Amount

Greenways Program

$1,060,000

Street Improvement

$140,000

Neighbourhood Traffic Calming

$122,000

Bus Bulge Installations

$35,000

Infill Street Lighting

$33,000

Bikeways Program

$27,000

Sub-Total (Sub-areas 1, 2, 4, 5, 6 and 7)

$1,417,000

Greenways Program (Sub-area 3)

$133,000

Sub-Total

$1,550,000*

Approved Funding

 

Park Board Tree Planting Program

$37,000

1998 Traffic Signal Program

$13,000

Total Estimated Cost of Project

$1,600,000

* Please note of the $1,550,000, $1,250,000 is funded from the approved 1998 Streets Capital Budget, and $300,000 is subject to approval of the 1999 Streets Capital Budget.

In addition to the proposed capital costs, maintenance budgets require an increase in funding as a result of this project. Commencing in 1999 and without offset the following increases are proposed:

Staff will apply to the Provincial Government's Cycling Network Program for supplemental funding for traffic signals and cycling oriented changes along this route. Staff will also contact ICBC for cost sharing on those changes which help address the high accident rates at specific locations along the route, and Public Art funding will be pursued to enhance the public realm.

IMPLEMENTATION PLAN

Should Council approve the Ridgeway west extension project, construction will be scheduled next year, and co-ordinated to qualify for the Provincial Government's Cycling Network Program.

CONCLUSION

The development of the Ridgeway between Granville and Blanca Streets, as outlined in this report, provides many environmental and social benefits for the residents of Vancouver.

ATTACHMENTS TO THIS DOCUMENT THAT DO NOT HAVE ELECTRONIC COPY ARE AVAILABLE ON FILE IN THE CITY CLERK'S OFFICE

*****


pe981001.htm

SURVEY RESULTS

Please note:

·All results are expressed as a percentage of the total responses, the first number in each category is the general response, the second number in brackets is the response of residents and property owners on the proposed route.
·The * indicates the proposed changes that were included in two adjacent survey areas.


pe981001.htm

SURVEY AREA 1 - GRANVILLE STREET TO WEST BOULEVARD

 

Yes

No

No Opinion

Greenways/Bikeways Program

80.6 (85.7)

16.1 (14.3)

3.2 (0)

Right-in and Right-out Diverter
- W. 37th, west of Granville

56.6 (81.0)

40.2 (19.0)

3.3 (0)

Traffic Circle
- W. 37th and Marguerite

53.8 (76.2)

43.0 (23.8)

3.2 (0)

A Curb and a Corner Bulge
- W. 37th and Laburnum

65.6 (85.7)

29.0 (14.3)

5.4 (0)

One Curb and Two Corner Bulges
- W. 37th and Maple

63.7 (85.7)

31.9 (14.4)

4.4 (0)

Four Corner Bulges
- W. 37th and West Boulevard

64.5 (90.5)

34.4 (9.5)

1.1 (0)

*Upgrade the Traffic Signal
- W. 37th and Arbutus

83.3 (90.5)

14.4 (4.8)

2.2 (4.8)

500 surveys were distributed, 100 were returned of which 21 were from residents on the greenway/bikeway.

APPENDIX A
Page 2 of 8

SURVEY AREA 2 - WEST BOULEVARD TO PUGET DRIVE

 

Yes

No

No Opinion

Greenways/Bikeways Program

84.3 (80.6)

13.5 (16.1)

2.2 (3.2)

*Upgrade the Traffic Signal
- W. 37th and Arbutus

75.3 (74.2)

20.2 (19.4)

4.5 (6.5)

Traffic Circle
- W. 37th and Yew

64.4 (68.8)

30.0 (28.1)

5.6 (3.1)

Central Medians
- W. 33rd and Vine

62.2 (62.5)

28.9 (28.1)

8.9 (9.4)

*Intersection Realignment
- Puget, Narvaez and W. 31st

64.8 (58.1)

21.6 (25.8)

13.6 (16.1)

425 surveys were delivered, 90 were returned of which 32 were from residents on the greenway/bikeway.

APPENDIX A
Page 3 of 8

SURVEY AREA 3 - PUGET DRIVE TO KING EDWARD AVENUE

 

Yes

No

No Opinion

Greenways/Bikeways Program

67.5 (60.0)

25.0 (30.0)

7.5 (10.0)

*Intersection Realignment
- Puget, Narvaez and W. 31st

56.9 (37.5)

33.3 (47.5)

9.8 (15.0)

Asphalt Sidewalk
- MacDonald between W. 29th
& W. 30th

59.8 (41.0)

32.8 (53.8)

7.4 (5.1)

Intersection Realignment
- Quesnel, MacKenzie and W. 27th

50.8 (37.5)

44.3 (55.0)

4.9 (7.5)

*Traffic Signal
- King Edward and Quesnel

55.3 (37.5)

40.7 (57.5)

4.1 (5.0)

*Right-in and Right out Diverter
- Quesnel, north of King Edward

46.3 (35.0)

46.3 (55.0)

7.3 (10.0)

*Central Median
- Quesnel, south of King Edward

50.8 (42.5)

41.1 (52.5)

8.1 (5.0)

555 surveys were delivered, 122 were returned, of which 40 were from residents on the greenway/bikeway.

APPENDIX A
Page 4 of 8

SURVEY AREA 4 - KING EDWARD AVENUE TO DUNBAR STREET

 

Yes

No

No Opinion

Greenways/Bikeways Program

83.6 (78.8)

8.5 (13.5)

7.9 (7.7)

*Traffic Signal
- King Edward and Quesnel

85.4 (90.6)

11.4 (5.7)

3.2 (3.8)

*Right-in and Right-out Diverter
- Quesnel, north of King Edward

64.5 (72.2)

27.9 (20.4)

7.7 (7.4)

*Central Median
- Quesnel, south of King Edward

67.4 (64.8)

21.7 (20.4)

10.9 (14.8)

Traffic Island
- Quesnel and W. 20th

84.2 (85.2)

12.0 (9.3)

3.8 (5.6)

Four Corner Bulges
- Blenheim and W. 20th

66.7 (66.6)

26.9 (20.4)

6.5 (13.0)

Traffic Circle
- Collingwood and W. 18th

59.5 (53.7)

24.3 (29.6)

16.2 (16.7)

*Pedestrian and Cyclist Traffic Signal
- Dunbar and W. 18th

79.0 (87.0)

11.8 (5.6)

9.1 (7.4)

*Central Median
- Dunbar and W. 18th

53.8 (55.6)

34.2 (33.3)

12.0 (11.1)

756 surveys were delivered, 195 were returned, of which 54 were from residents on the greenway/bikeway.

APPENDIX A
Page 5 of 8

SURVEY AREA 4 - KING EDWARD AVENUE TO DUNBAR STREET
OFF-GREENWAY CHANGES

 

Yes

No

No Opinion

Intersection Realignment
- Puget and King Edward

66.1

19.9

14.0

Intersection Realignment
- Quesnel and Blenheim

72.4

18.9

8.6

Intersection Realignment
- Puget and Blenheim

65.1

19.9

15.1

Intersection Realignment
- Quesnel and W. 16th

65.8

24.5

9.8

APPENDIX A
Page 6 of 8

SURVEY AREA 5 - DUNBAR STREET TO CAMOSUN STREET

 

Yes

No

No Opinion

Greenways/Bikeways Program

84.2 (85.4)

13.2 (10.4)

2.6 (4.2)

*Pedestrian and Cyclist Traffic Signal
- Dunbar and W. 18th

80.5 (83.3)

17.7 (12.5)

1.8 (4.2)

*Central Median
- Dunbar and W. 18th

57.0 (64.6)

36.8 (29.2)

6.1 (6.3)

Traffic Circle
- Wallace and W. 18th

54.9 (58.3)

38.1 (37.5)

7.1 (4.2)

*Cyclist Activated Traffic Signal
- W. 16th and Camosun

73.2 (77.1)

18.8 (14.6)

8.0 (8.3)

*Two Corner Bulges
- Camosun, south of W. 16th

65.5 (72.9)

26.5 (20.8)

8.0 (6.3)

627 surveys were delivered, 117 were received, of which 48 were from residents on the greenway/bikeway.

APPENDIX A
Page 7 of 8

SURVEY AREA 6 - CAMOSUN STREET TO WEST 10TH AVENUE

 

Yes

No

No Opinion

Greenways/Bikeways Program

89.1 (75.0)

6.5 (13.0)

4.5 (9.0)

*Cyclist Activated Traffic Signal
- W. 16th and Camosun

84.5 (73.2)

12.5 (25.0)

3.0 (1.8)

*Two Corner Bulges
- Camosun, south of W. 16th

72.1 (63.6)

22.9 (29.1)

5.0 (7.3)

*Two Corner Bulges
- W. 14th and Discovery

56.9 (44.6)

37.6 (44.6)

5.6(10.7)

Traffic Circle
- W. 12th and Discovery

56.6 (43.9)

38.9 (47.4)

4.5 (8.8)

*Partial Road Closure
- Discovery, south of W 10th

40.5 (33.3)

52.0 (59.6)

7.5 (7.0)

*Pedestrian and Cyclist
Activated Traffic Signal
- W. 10th and Discovery

87.6 (82.5)

10.9 (14.0)

1.5 (3.5)

*Partial Road Closure
- Discovery, north of W. 10th

41.8 (35.1)

48.8 (52.6)

9.5(12.3)

*Four Corner Bulges
- W. 10th and Discovery

61.2 (54.4)

34.3 (42.1)

4.5 (3.5)

1216 surveys were delivered, 283 were returned, of which 57 were from residents on the greenway/bikeway.

APPENDIX A
Page 8 of 8

SURVEY AREA 7 - WEST 10TH AVENUE AND BLANCA STREET

 

Yes

No

No Opinion

Greenways/Bikeways Program

85.5 (80.0)

12.7 ( 17.1)

1.8 (2.9)

*Partial Road Closure
- Discovery, south of W. 10th

43.9 (41.7)

39.0 (38.9)

17.1(19.4)

*Pedestrian and Cyclist
Activated Traffic Signal
- W. 10th and Discovery

90.2 (88.9)

4.9 (5.6)

4.9 (5.6)

*Partial Road Closure
- Discovery, north of W. 10th

47.5 (45.7)

45.0 (45.7)

7.5 (8.6)

*Four Corner Bulges
- W. 10th and Discovery

65.9 (61.1)

29.3 (33.3)

4.9 (5.6)

Two Corner and One Curb Bulges
- W. 8th and Discovery

73.2 (69.4)

24.4 (27.8)

2.4 (2.8)

Plaza
- W. 8th and Discovery

37.5 (38.9)

50.0 (47.2)

12.5(13.9)

Four Corner Bulges
- W. 8th and Trimble

61.0 (58.3)

31.7 (33.3)

7.3 (8.3)

550 surveys were delivered, 56 surveys were returned, of which 36 were on the greenway/bikeway.

R:\CC\REPORTS\P&E\1998\981001\PE3.

APPENDIX B
(9 Pages)

PROPOSED ROUTE AND CHANGES

APPENDIX D
Page 1 of 5
QUESNEL DRIVE COMPLETED SURVEY, LETTER & MAP

APPENDIX E
Page 1 of 18

SUB-AREA 3 - PETITIONS AND RESPONSES

Overview - Sub-Area 3 Petitions

Petition

Date

No. of Households

1
2
3
4

December 23, 1997
April 3, 1998
July 9, 1998
August 20, 1998

10
4
38 (30 new)
76 (35 new and 1 household outside the survey area).

Please note of the seventy-six households listed on petition no. 4, forty-two also completed the greenways survey.

APPENDIX F
Page 1 of 7

SUB-AREA 3 ALTERNATIVE ROUTES


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