SUPPORTS ITEM NO. 1
VTC AGENDA
SEPTEMBER 14, 1995
ADMINISTRATIVE REPORT
Date: August 28, 1995
File: 125 830
TO: Vancouver Traffic Commission
FROM: General Manager of Engineering Services
SUBJECT: Southwest Marine Drive Safety Issues
RECOMMENDATION
A. THAT a proposal for peak hour High Occupancy Vehicle (HOV)
lanes on Southwest Marine Drive be brought forward for
consideration as part of the next capital program to reduce
single occupant vehicle use.
B. THAT, in conjunction with implementation of an HOV lane, BC
Transit be requested to provide express bus service, between
suburbs to the south and UBC along Southwest Marine Drive.
C. THAT Southwest Marine Drive be signed as a bicycle route
between Granville Street and the University Endowment Lands
(UEL), with the specific improve-ments to be determined by
staff in consultation with the Bicycle Advisory Committee.
D. THAT the intersection of Southwest Marine Drive and the
north leg of Angus be included in the review process for the
installation of a signal in the next Traffic Signal Program.
E. THAT sidewalk construction on Southwest Marine Drive be
initiated by the City to improve pedestrian access between
Maple Grove Park and Angus Drive.
F. THAT in conjunction with sidewalk installation on Southwest
Marine Drive, a marked crosswalk be installed at Arbutus to
improve pedestrian access to Arbutus Park and McKechnie
School.
G. THAT intersections adjacent to Maple Grove Park,
specifically Yew and Balsam, be further reviewed as part of
future Traffic Signal Programs. H. T H A T t h e P o l i c e
Department be requested to
give special attention to
enforcement of speeds on
Southwest Marine Drive.
I. THAT the Police Commercial Vehicle Unit be requested to give
special attention to enforcement of overweight vehicles and
the use of engine brakes on Southwest Marine Drive.
J. THAT signing be erected in the area of Maple Grove Park to
discourage the use of engine brakes.
K. THAT the issue of truck use on Southwest Marine Drive, and
in the City, be referred to the Transportation Plan.
L. THAT UBC be thanked for its efforts to encourage carpooling,
bicycling, and transit use in the past, and be asked to
continue and increase these efforts, including consideration
of staggered starting times for classes and offices.
COUNCIL POLICY
* In 1975, Council adopted a revised truck route system including
the designated truck use of Southwest Marine Drive, retaining
the philosophy of dispersed trucking on designated truck routes,
which minimizes truck miles in the City and, therefore,
detrimental environmental impact.
* In 1980, Council added Southwest Marine Drive from Dunbar to
Camosun to the Truck Route System.
* Council has indicated the modes of transportation be placed in
the priority of pedestrian, bicycle, transit, goods movement and
auto.
* The Vancouver Comprehensive Bicycle Plan (1988) and the Clouds
of Change Report (1990) established the City's policy to promote
and increase the ease and accessibility of bicycling to make it
a better transportation alter-native.
* The Vancouver Comprehensive Bicycle Plan (1988) also identifies
Southwest Marine Drive, from 41st Avenue to Granville, as a
priority corridor for bicycle improve-ments.
* On May 14, 1992, Council approved the concept of a city-wide
bicycle route network.
SUMMARY
This report recommends a number of safety measures to address the
concerns raised by residents of Southwest Marine Drive.
The review and implementation of crosswalks and pedestrian activated
signals as part of the sidewalk construction along Southwest Marine
Drive is recommended to address pedestrian safety concerns. This
would create a more inviting and pedestrian-friendly environment for
the residents. Motorist awareness of pedestrians would also be
increased, as there would be more visible signs and facilities.
Noise and environmental impacts related to truck use on Southwest
Marine Drive are primary concerns for the local residents. Unlike
other cities, Vancouver does not have a freeway system to carry the
bulk of truck traffic. Southwest Marine Drive is one of many truck
routes where homes front the street. Alternative routes for truck
traffic have been reviewed, but the existing dispersed truck route
system provides the shortest and most effective route to minimize
overall environmental impacts.
For the past few years there has been a temporary increase in
construction at UBC. This has resulted in an increase of trucks on
Southwest Marine Drive. However, as the projects come to an end, the
truck use is expected to decrease. In the longer term, the ongoing
process of decentralizing employment to the surrounding suburban areas
to reduce the growth of employment in Vancouver will also reduce
growth of trucking in Vancouver.
Proactive measures are proposed for the corridor, in order to reduce
the impact of UBC destined travel. It is recommended that initiatives
to promote the use of alternative modes of transportation such as
bicycles, transit and carpools be continued to reduce dependency on
automobiles, and thus the number of vehicles on Southwest Marine
Drive. The use of Southwest Marine Drive as a UBC bicycle connection,
and the potential implementation of High Occupant Vehicle (HOV) lanes
with new bus services in the area would provide viable options for
many students destined to the UBC campus.
PURPOSE
The purpose of this report is to propose proactive measures to improve
safety and reduce impacts of traffic along Southwest Marine Drive
between Cornish Street and 41st Avenue.
BACKGROUND
At its meeting on February 3, 1994, Traffic Commission requested a
report to address the concerns of residents regarding the use of
Southwest Marine Drive as a truck route and a lack of safe pedestrian
crossings to parks and schools.
Staff have met with area representatives to discuss their concerns on
Southwest Marine Drive from Cornish Street to 41st Avenue. Their
concerns are the escalation of traffic volume and speed, the lack of
traffic gaps for driveway access, a lack of crosswalks and signals for
pedestrian access to schools and local parks, and the volume of heavy
trucks. Staff have also discussed the residents' concerns with Park
Board and school staff.
EXISTING CONDITIONS
The area adjacent to Marine Drive is primarily residential and park
land. Southwest Marine Drive is mostly fronted by homes on large
lots; there are also two neighbourhood parks and several golf courses.
Referring to Figure 1, McKechnie Elementary School and Kerrisdale
Annex are located in the immediate area. The residential community of
Angus Lands situated north of the Fraser River has been recently
developed, with further development underway.
Southwest Marine Drive is a through street and traverses diagonally in
a northwest-southeast direction between 41st Avenue and Cornish
Street. The road is relatively flat but there are some minor hills
and curves. It is a two-lane roadway with paved shoulders on both
sides which are used by bicycles. There are five traffic signals,
located at the intersections of Cornish, 57th, Blenheim, Dunbar, and
41st (See Figure 1). The #49 and the #480 buses use Marine Drive
between Dunbar and 49th Avenue. The area is not frequently used by
pedestrians in the east-west direction, and the general lack of
sidewalks or other pedestrian facilities along Marine Drive reflects
this situation. There are some north-south pedestrian movement
patterns, which are generally associated with the existing signals and
marked crosswalks.
Pedestrian safety is one of the concerns expressed by residents,
specifically, safe access to neighbourhood parks and schools. Several
neighbourhood attractions have been identified by the area
representatives as those in need of pedestrian crossing facilities.
Development of Fraser River Park has also created a new north-south
movement pattern.
Historic accident information for Southwest Marine Drive between
Cornish and 41st was analyzed. In a city-wide comparison, the
accident rates on Southwest Marine Drive are lower than those on other
city streets with similar volumes. A comparison of historic trends
also shows that accident rates are declining at most locations along
this section.
During the peak periods, Southwest Marine Drive is often at capacity.
In the morning rush hour, the westbound volumes are about 950 to 1200
vehicles per hour. In the afternoon rush hour the eastbound volumes
are about 800 to 1100 vehicles per hour. Most of these vehicles are
generated by the UBC Campus. Because UBC has, for the most part,
common office and class hours, congestion can be severe for a short
period of time, and a few minutes later conditions can be very
different.
UBC student enrollment has increased and there has been an increase in
students commuting from outside the City of Vancouver. For example,
Richmond has been one of the fastest growing municipalities in the
Lower Mainland and Southwest Marine Drive is a link to connecting
bridges. Other arterial streets in the area such as Granville, 41st
and 49th have also experienced traffic growth. Like Southwest Marine
Drive, these roads also reach capacity and experience congestion
during the peak periods.
ALTERNATIVE MODES OF TRANSPORTATION
UBC's efforts to reduce the number of single occupant vehicles have
been proceeding on several fronts; the Traffic Demand Management
Program at UBC has been recognized by "Go Green" as one of the best in
BC. Programs to inform and encourage motorists to use alternative
methods of transportation such as car-pooling and bicycling have
proven to be quite successful. Also, UBC is planning more student
housing, some of which is opening this fall. It is expected UBC will
continue to expand these efforts.
Many of the residents' concerns stem from the increase in traffic
volumes and vehicle speeds on Southwest Marine Drive. In view of the
traffic volumes on other arterial routes, e.g. Granville, 49th and
41st Avenue, traffic on Southwest Marine Drive cannot be diverted
without creating substantial impacts on other routes and neighbourhood
shortcutting. To mitigate traffic increases on Southwest Marine
Drive, alternative modes of transportation, i.e. bicycling, transit
and carpooling, need to be increased.
With its combination of moderate terrain, wider lanes, and paved
shoulders, Southwest Marine Drive is used by many cyclists. It is
proposed that Southwest Marine Drive be signed as a bicycle route and
have additional improvements as determined by staff in conjunction
with the Bicycle Advisory Committee.
Southwest Marine Drive has been identified in the Comprehensive
Bicycle Plan and Bicycle Network Plan as a desirable route for
cyclists.
B.C. Transit provides a limited peak hour express bus service from
Richmond and a more frequent service (the #49 route) between 49th
Avenue and Dunbar. B.C. Transit is not able to effectively compete on
a travel time basis with auto traffic to and from UBC. Transit has
recommended a bus lane be considered along Marine Drive between 49th
Avenue and Dunbar so it can be more travel-time competitive. Any
increase in transit's market share could then result in increased
service in this corridor, not only on the #49 Route in Vancouver but
also in express suburban services from Richmond.
Transit has recommended a bus lane on Marine Drive only between 49th
Avenue and Dunbar. It may be effective for the City to consider an
HOV lane, including road widening where necessary, on Marine from
Granville to 41st Avenue in the longer term, and ask B.C. Transit to
implement express bus service in conjunc-tion with this improvement.
This service would then provide a significant alternative to single
occupant vehicle use. Such a facility would provide a greatly
improved alternative for transit, cyclists and carpools.
FIELD REVIEW AND PROPOSED MEASURES
As indicated by area residents, there are few pedestrian cross-ing
facilities on Southwest Marine Drive. Marked crosswalks are in place
at Balaclava, Collingwood, Olympic, and Crown. Between Balaclava and
Cornish, the only signalized crossing is at the intersection of 57th
Avenue.
Annually, a number of locations are reviewed citywide for the
installation of pedestrian activated signals. Several loca-tions on
Southwest Marine Drive are on this list. To determine the priority,
each location is reviewed using criteria includ-ing pedestrian use,
pedestrian generators such as bus stops, schools and parks, available
gaps in traffic, accident history, geometric constraints and safety
conditions. All the study locations are evaluated to generate a
recommended list for the Annual Traffic Signal Program.
Over the past several years, a number of pedestrian studies and
reviews have been conducted on Southwest Marine Drive. Gener-ally,
very little, if any, pedestrian activity was observed. Some gaps were
found in the traffic flow to accommodate the few pedestrians crossing
the street. The study results were assessed with other priority
locations. When reviewed city-wide, pedestrian signals have not been
recommended at these intersections due to other more urgent needs in
the City.
Input from the Park Board staff was solicited and they advised that no
complaints have been received from the public regarding pedestrian
access to neighbourhood parks.
Studies on access to Southwest Marine Drive from private drive-ways
and intersecting local streets showed that even during peak periods
gaps in traffic flow were available. Breaks in traffic may at times
appear to be infrequent and inadequate, but in fact gaps are always
available, even during peak periods.
CONCERNS AT SPECIFIC LOCATIONS
Angus Drive
Activity at Angus Drive is now increasing for several reasons:
1. Fraser River Park is an attractive destination for pedestrians,
and a new pedestrian pathway was recently installed to
accommodate them;
2. the Angus Lands development has introduced more population to the
area; and,
3. efforts to control shortcutting on local streets in the area are
diverting neighbourhood traffic to Angus, which is the extension
of West Boulevard.
Because of recent growth, Angus should be included in the review
process for future Traffic Signal Programs. In the interim, the
safety conditions are being monitored and improve-ments such as tree
trimming to increase sight lines have been requested through the Park
Board.
Arbutus Park and McKechnie School
Area residents requested that a crosswalk be marked at Arbutus to
guide pedestrians across Southwest Marine Drive. Studies have been
conducted at Arbutus but, again, very few pedestrians were observed.
The school principal at McKechnie Elementary
advises that a total of 15 students live in the area south of
Southwest Marine Drive with 7 from the Angus Lands and 8 from the
general area to the south. These students would face up to a 2
kilometre walk each way, and it would appear that most are driven to
and from school. This would account for the lack of pedestrian demand
at this time. The pedestrian visibility is excellent and gaps are
available in the traffic flow to accommodate the few pedestrians. For
most of those students who walk, a signal at Angus would provide a
suitable crossing. A marked crosswalk at Arbutus could enhance
motorist awareness of potential pedestrian activity in the area. It
would also guide pedestrians to the more desirable crossing location
at the intersection. However, in order to permit pedestrian access,
sidewalks should be constructed on Southwest Marine Drive to provide a
safe and attractive pathway, separate from the vehicles on the
roadway. An isolated crosswalk in this location, with no walkway
facilities to bring pedestrians to it, would be of limited benefit.
Therefore, the installation of a crosswalk at Arbutus should be
pursued in conjunction with sidewalk construction.
Maple Grove Park
The streets intersecting Southwest Marine adjacent to Maple Grove Park
are Yew and Balsam. Residents have requested the installation of a
marked crosswalk to assist pedestrians in crossing Southwest Marine
Drive to the park. These two locations were reviewed and it was found
that there was very little pedestrian demand. Although the park is
well used for sporting events and outings in the summer, most patrons
appeared to have driven to the park, or to have walked from north of
Marine Drive.
The signal at 57th can be utilized by pedestrians until pedestrian
demand warrants a signal at Yew. Marked crosswalks are installed to
direct pedestrians to a preferred crossing location. Because of the
road geometry, safety concerns related to poor pedestrian visibility
and limited sight lines at both Yew and Balsam, these locations would
not be appropriate for a marked crosswalk. The greater level of
protection afforded by a signal would be more appropriate. With
recent improvements in the park it is proposed that these
intersections be included for review in future Traffic Signal Programs
for possible signal installation.
49th Avenue
Access from 49th Avenue is also a concern for area residents. They
feel that due to the high volume of traffic, sufficient gaps are not
available on Southwest Marine Drive to allow turning movements from
49th Avenue to be made safely. However, traffic entering Southwest
Marine Drive, from the north turning westbound, has its own reserved
lane to turn into. An alter-native route is available via the
intersection of Blenheim and 49th for those who wish to make use of
the signal, particularly residents to the south of 49th. Area
representatives requested that a signal be installed at the
intersection of Southwest Marine Drive and 49th Avenue. This location
will be included in the review process for the next Traffic Signal
Program.
TRUCK USE ON SOUTHWEST MARINE DRIVE
Truck noise has been a major concern for many Vancouver residents. As
there is no freeway system in the City of Vancouver, a network of
major streets is used to carry the bulk of truck traffic. All truck
traffic is on major streets which are in close proximity with
pedestrians, other traffic, businesses and in most cases, residences.
Southwest Marine Drive is among many truck routes where residences
abut the street and is designated as one portion of the overall truck
route system for the City. The system is based on the philosophy of
dispersed trucking on designated truck routes, which minimizes truck
miles in the City and, therefore, detrimental environmental impact.
In general, truck routes connect points of entry to the City with
destinations within the City.
In 1975, Council approved the present truck route system which
incorporates Southwest Marine Drive. (This revision was listed under
"short-term measures", defined as items that could be dealt with
immediately. This may have generated some misunder-standing;
Southwest Marine Drive was not designated as a temporary truck route.)
"Long-term measures" identified in the report included concepts such
as decentralization of industry to the surrounding suburban areas, or
developing a new truck bypass along the Fraser River. Subsequently,
in 1980, Council approved the proposal to incorporate Southwest Marine
Drive west of Dunbar as part of the truck route system.
Some residents have asked that Southwest Marine Drive be removed from
the City's truck route system. Concerns were raised regarding truck
noise and environmental impact on residences fronting the route.
Alternative routes for truck traffic have been reviewed. Southwest
Marine supplies the shortest length of travel, 5.5 km, and impacts the
lowest number of residents, 1050. The next shortest truck route
serving the area, Granville and 41st, has a length of 7.3 km, with
1500 residents living abutting the route. The use of the existing
dispersed truck route system is based on minimizing environmental
impacts by providing for the shortest route capability.
Presently, heavy trucks comprise about 2% of the vehicle traffic on
Southwest Marine Drive. Aside from the industrial strip on 75th
Avenue by Barnard Street, the only other major destination for trucks
is the UBC campus, where several construction projects have been
underway. As a result, there has been a noticeable increase in truck
volumes and associated noise. However, this is a temporary condition
and as the projects approach completion, the volume of trucks on
Southwest Marine Drive is expected to decline.
To minimize trucking impacts on adjacent residents, a number of
trucking and construction companies frequently using Southwest Marine
have been reminded to avoid the use of engine brakes in consideration
of the residents and other travellers along this corridor. Increased
signage near Maple Grove Park is proposed to reduce the usage of
engine brakes by trucks in the area. The Police Commercial Vehicle
Unit will also be requested to give special attention to enforcement
of improper truck use on Southwest Marine Drive such as possible
overweight vehicles and the prohibited use of engine brakes.
A new bypass route to the south of Southwest Marine Drive was
suggested in the 1975 study, and again recently by a resident. This
continues to be an option for consideration as rezoning occurs. This
alternative would involve constructing a right-of-way through existing
parklands and golf courses, and alongside the Fraser River. Another
suggestion was the conversion of Southwest Marine Drive into a one-way
street system. Based on the layout of the surrounding street system,
this option would not be feasible as it would create circuitous routes
for trucks and future transit, and would introduce unwanted
neighbourhood shortcutting.
In summary, Southwest Marine Drive was established as part of the
designated truck route system in 1975 to minimize necessary travel.
The long-term plan of decentralization to the surrounding suburban
areas is expected to reduce the growth of trucking in Vancouver, while
trucks to UBC specifically are expected to decline. However, the
existing truck route system is the most appropriate and Southwest
Marine Drive remains an integral component of the system. It is
recommended that the issue of truck use in the City be referred to the
Transportation Plan process which is underway at this time.
CONCLUSION
The lack of pedestrian facilities along Southwest Marine Drive is an
ongoing concern. In order to encourage pedestrian activities in this
area, a more inviting and friendlier pedestrian environment is needed
and several measures should be pursued. To improve pedestrian safety
on Southwest Marine Drive, it is proposed that:
* the intersection of Southwest Marine Drive and the north leg of
Angus Drive be included in the review process for the next
Traffic Signal Program;
* sidewalk construction on Southwest Marine Drive be pursued with
the area residents, in conjunction with a marked crosswalk at
Arbutus to provide access to Arbutus Park; and,
* intersections adjacent to Maple Grove Park be reviewed for a
pedestrian signal as part of the Annual Traffic Signal Program.
To mitigate the increase in vehicle volumes on Marine Drive, it is
recommended that:
* the City continue its efforts to encourage public use of
alternative modes of transportation such as bicycles, transit
and carpool to reduce automobile use;
* Staff and B.C. Transit prepare a proposal for an HOV lane,
including street widening, along Southwest Marine Drive for
consideration as part of the next capital plan;
* B.C. Transit be requested to provide express bus service from
Richmond and Marpole via Marine Drive in conjunction with an HOV
lane;
* Marine Drive be signed and improved as a bicycle route in
consultation with the Bicycle Advisory Committee; and,
* UBC be encouraged to further its efforts in promoting
alternative transportation methods, and staggered starting times
for staff and students.
To address specific concerns, it is recommended that:
* the Police be requested to give special attention to enforcement
of speeds on Southwest Marine Drive;
* signage be installed to discourage operators of heavy trucks
from using their engine brakes along this residential area; and,
* the Police Commercial Vehicle Unit give special attention to
enforcement of overweight vehicles and the use of engine brakes
on Southwest Marine Drive.
The implementation of these measures requires the combined efforts of
staff, various local authorities and the residents. While immediate
results may not be achieved with some measures, all are in the best
long-term interest of the area. In the interim, the recommendations
will enable City staff to take necessary steps to improve safety on
Southwest Marine Drive.
* * * * *