Agenda Index City of Vancouver

ADMINISTRATIVE REPORT

TO:

Standing Committee on Transportation and Traffic

FROM:

General Manager of Engineering Services

SUBJECT:

Wall Street Area Traffic Plan, Burrardview Bikeway, and Lakewood Bikeway Extension

 

RECOMMENDATION

COUNCIL POLICY

On May 27, 1997, Council approved the Vancouver Transportation Plan that emphasized the need to provide more comfortable cycling and walking environments.

On July 18, 1995, Council adopted the Vancouver Greenways Plan comprising 14 routes including the Harbour Route along Wall Street.

On May 14, 1992, Council approved a City-wide bicycle route network with priority given to local street integration.

Council has a long standing Policy to mitigate the impacts of traffic in local areas.

SUMMARY AND PURPOSE

This report seeks Council approval for the permanent implementation of traffic calming measures for the Wall Street Area. This report also seeks Council approval for a northern extension of the existing Lakewood Bikeway to Wall Street and the designation of the Burrardview Bikeway, including construction of the portion of this new bikeway along Wall Street from Oxford Park to Kaslo Street in spring 1999. By coordinating these projects, all of the traffic calming and bikeway measures proposed in this report have the potential to qualify for Provincial Cycling Network Program funding, which would reduce construction costs by as much as 50%. Significant cost savings have also been achieved by combining the public consultation for these projects, which have elicited popular support from area residents.

Wall Street Area Traffic Plan

Shortcutting traffic and traffic speed have long been major issues of concern for residents living in the neighbourhood bounded by Wall, Dundas, Nanaimo and McGill Streets. In June 1997, Council approved a traffic calming plan, developed by City staff and neighbourhood residents, to install temporary traffic calming measures in the Wall Street Area for a trialperiod. While traffic volumes have been reduced significantly, speeds are still a concern for Wall Street Area residents. Traffic counts and speed checks have confirmed this. In October 1998, staff and residents evaluated the effectiveness of these temporary measures and modified the plan in response to remaining concerns regarding traffic speeds.

Burrardview Bikeway and Lakewood Bikeway Extension

The Trans Canada Trail (TCT) will link Canada's three Oceans by a shared-use trail to accommodate five core activities: walking, cycling, horseback riding, cross-country skiing and snowmobiling. In urban areas, such as Vancouver, the trail will primarily accommodate pedestrians and cyclists. In December 1997, Council committed in principle to the TCT and approved funds for preliminary design and public consultation. Lakewood Drive from Adanac Street to Wall Street and Wall Street from Oxford Park to Kaslo Street (part of the Harbour Route Greenway) have been identified as part of the preferred route of the TCT (see Vancouver Route Map, Appendix A). Initial efforts have focused on the designation of this section of the route as a City bikeway. The existing Lakewood Bikeway would be extended north from its terminus at Adanac Street to meet with Wall Street at Oxford Park. Wall Street east of Oxford Park would become the Burrardview Bikeway, and would link up with the existing Sunrise Bikeway at Kaslo Street. All of the traffic calming measures proposed for Wall Street have been designed to ensure compatibility with the future implementation of the Harbour Route Greenway and the Trans Canada Trail.

BACKGROUND

1986: Grandview-Woodland Traffic Management Plan, Council approved the reclassification of Wall Street from arterial to local status, but deferred development of a traffic calming plan. Council also declassified Wall Street as a truck route, when Commissioner was so classified.

1993: As part of the approval of the Port Roadway Project, Council approved the closure of Wall Street at McGill Street.

1995 to March 1997: Staff worked with the neighbourhood group to review traffic patterns in the Wall Street Area and prepare a neighbourhood traffic calming plan with the goals of reducing commuter traffic, reducing traffic speed and improving safety in the neighbourhood.

June 17, 1997: Council approved the implementation, on a trial basis, of the traffic calming plan for the Wall Street Area.

January 6, 1998: Council committed in principle to developing the Vancouver portion of the Trans Canada Trail, using existing and proposed Bikeways and Greenways to the extent possible, in time for an official opening in the spring of the year 2000.

May 1998: Traffic control measures were implemented on a trial basis for review at a later date. The traffic circles and street closure of Wall St. at McGill St. were installed on a permanent basis.

February 3, 1998: City staff met with the Vancouver School Board (VSB) and the Principal of Templeton School to discuss the potential construction of a bike path through the Templeton School grounds as part of the Trans Canada Trail. Both the VSB and the Principal of the school expressed support for the proposed path.

October 6, 1998: An Open House was held to get resident feedback on both the installed temporary traffic measures and the proposed Trans Canada Trail route along Lakewood Drive and Wall Street. Enthusiastic support was received from residents for the designation of Wall Street and Lakewood Drive as part of the TCT.

October 9, 1998: Staff met with the Wall Street Area Working Group to develop a permanent traffic plan, based on traffic measurements and feedback from the October 6 Open House.

October 1998: A survey was delivered to residents and businesses in the area bounded by Wall, McGill, Nanaimo and Dundas Streets (see Appendix B for Surveyed Area, Appendix D for Survey Results). This survey asked residents their opinion regarding the revised Wall Street Area Traffic Calming Plan. This survey also asked Wall Street Area residents about the proposed Trans Canada Trail/bikeway alignment through their neighbourhood. Residents in the area bounded by Dundas Street, Nanaimo Street, Venables Street and Victoria Drive received an opinion survey on the Lakewood Drive portion of the proposed TCT/Lakewood Bikeway Extension (see Appendix C for Surveyed Area, Appendix E for Survey Results).

November 2, 1998: Applications were submitted to the Province seeking Cycling Network Program (CNP) funding for the construction of the Burrardview and Lakewood Bikeways. The list of successful applications is expected to be announced in spring 1999.

DISCUSSION

Wall Street Area Traffic Plan

Since 1986, there have been several street modifications in the Wall Street Area such as the construction of the Cassiar Tunnel, Second Narrows Bridge redecking, the Nanaimo-McGill intersection modification, and the relocation of the Port Road Overpass. In the past,residents have expressed concerns about the volume and speed of commuter traffic using Wall Street to bypass the rush hour congestion on McGill and Nanaimo/Dundas Streets. Trial traffic calming measures installed in May of 1998 have been evaluated by City staff and residents of the Wall Street Area. While traffic volumes on Wall Street have been reduced significantly in recent years, (reduced 55% since 1990, 30% since 1995), speed still remains a concern. The following recommended measures, developed in conjunction with residents, are intended to reduce speeds on Wall Street, and make Wall Street more suitable as a bikeway and future greenway (see Appendix B: Wall Street Traffic Plan and Bikeway/Surveyed Area):

1) No Left Turn (3-6pm Monday-Friday) for eastbound Powell to northbound Wall. This was tested as a temporary measure to prohibit shortcutting on Wall Street.

2) Bulges on Wall Street at Oxford Park. The northern extension of the Lakewood Bikeway will connect to the Burrardview Bikeway via a path through Oxford Park. This measure will provide cyclists with a safe and convenient access between Wall Street and the Oxford Park path. The path was built in the summer of 1998 as part of the Park Board's enlargement and redevelopment of Oxford Park. The reduction in street width provided by these bulges would improve pedestrian access between Oxford Park and Cambridge Park. This should also help to slow traffic along Wall Street.

3) Traffic Circle at Eton/Wall. A 3-way stop was installed at this intersection as a temporary measure. In response to resident concerns regarding motorists disobeying the stop signs as well as the proposed construction of the bikeway along the route, a traffic circle is recommended instead.

4) Corner Bulges, plus 3-way stop at Trinity/Wall. These measures have been tested on a temporary basis.

5) Removal of one-way eastbound on Yale between Nanaimo and Kamloops. This measure, temporarily installed on a low volume street segment, has marginal safety or traffic calming benefit and has restricted access for a number of residents.

6) 3-Way Stop and Corner Bulges at Penticton/Wall. The 3-way stop was installed on a temporary basis and has been the source of many complaints related to motorist non-compliance. The existing street width at this location, 16m, makes pedestrian access to Burrardview Park difficult. It is anticipated that the addition of bulges at this intersection will help to make motorists more aware of the 3-way stop and make pedestrian crossing of Wall Street safer.

7) No Right Turn from southbound Nanaimo to westbound McGill. This diversionary measure has been tested on a temporary basis.

Burrardview Bikeway and Lakewood Bikeway Extension

The Lakewood Bikeway extension is an important link between the Burrardview Bikeway and the Adanac Bikeway's route to downtown Vancouver. It is also an important component of the Trans Canada Trail. Cost savings to the City have also been achieved by combining the public consultation for the bikeways with the Wall Street Area Traffic Plan. Construction costs of the Wall Street Traffic Calming measures could be reduced by as much as 50% as a Cycling Network Program funded bikeway.

The following measures are recommended to improve cyclist and pedestrian safety on the Lakewood Bikeway extension (see Appendix C: Lakewood Bikeway Extension Traffic Plan/Surveyed Area). A majority of the returned surveys supported these measures (see Appendix E: Lakewood Bikeway Survey Results).

1) Bulge at Lakewood/Adanac. This bulge would improve cyclist safety and improve visibility at the intersection of the Lakewood and Adanac Bikeways. It would also have the added benefit of physically reinforcing the existing one-way eastbound traffic flow only at this location on Adanac Street. Violations of this one-way restriction have been a source of concern for residents on this section of Adanac Street.

2) Bike path through Templeton High School grounds. This path would reduce conflicts between cyclists and pedestrians and keep the bikeway aligned along the Lakewood Drive right-of-way. The Vancouver School Board and Templeton School Principal support this proposal. City staff have been working directly with Templeton School staff and students and the Trans Canada Trail Foundation representative to develop the detailed design. This would likely be the site of a public art project, to be developed by local artists in cooperation with the staff and students of Templeton School.

3) Modification of the existing diagonal diverter at Lakewood/Ferndale to facilitate bicycle access.

4) Pedestrian/Cyclist activated signal at Lakewood/Hastings. This signal would assist cyclists and pedestrians crossing Hastings Street. This signal is recommended in the 1999 Signal Program based on the existing pedestrian demands and history of pedestrian related accidents. The 1999 Signal Program report is scheduled to Council in April 1999.

5) Traffic circle at Lakewood/Pandora. This would replace the existing 2-way stop.

6) Pedestrian/Cyclist activated signal at Lakewood/Dundas.

7) Route Signage. The signage would be similar to what has been successful along existing Vancouver bikeways. All would be based on the use of clear, internationally recognized standard symbols with a minimum of wording. The route markers would be placed at one block intervals, alternating directionally. As well, replacement street name signs that include a bicycle logo, overhead signs at major intersecting streets, and new bicycle pavement markings would be installed along the length of the route.

Greenways

In July 1995, Council adopted the Vancouver Greenways Plan. Greenways are pedestrian and cyclist friendly routes through the city. 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 sidewalks. Pedestrian and cyclist safety features, traffic calming measures, and amenities such as benches, drinking fountains, trees and public art are typically incorporated into their design.

The Harbour Route Greenway extends along Burrard Inlet, from the Seaside Greenway downtown to Burnaby's trail system. The Harbour Route is expected to follow Wall Street, which features a series of parks with significant views to downtown and the North Shore. The proposed traffic calming measures have been developed in consultation with Greenways staff to ensure compatibility with future greenway enhancements.

The Trans Canada Trail

The Trans Canada Trail (TCT) is a pedestrian and bicycle friendly route that will connect Canada's three oceans. In January 1998, Council committed in principle to developing the Vancouver Portion of the TCT using existing and planned bikeways and greenways. Lakewood Drive, from Adanac Street to Wall Street, and Wall Street from Oxford Park to Kaslo Street, have been identified as part of the preferred route of the TCT (see companion report and Vancouver Route Map Appendix A). The scheduled nation-wide completion date for the TCT is September 2000.

PUBLIC OPINION SURVEYS

Wall Street Area Traffic Plan and Bikeway Survey

Residents in the area bounded by Wall, McGill, Nanaimo, Dundas, and Powell Streets received the Wall Street Area Traffic Plan and Bikeway Survey (see Appendix B forSurveyed Area, Appendix D for Survey Results). This survey asked residents for feedback on the Wall Street Area Traffic Plan and the proposed Burrardview Bikeway/TCT. A total of 2529 surveys were delivered and 246 were returned for a 10% response rate.

All of the specific measures proposed in this survey were supported by a significant majority of respondents. Eighty-five percent of respondents supported the alignment of the bikeway/TCT through their neighbourhood. A significant number of residents also included comments to emphasize their support for the proposed bikeway/Trans Canada Trail.

Lakewood Bikeway (Northern Extension) Survey

Residents in the area bounded by Dundas Street, Powell Street, Nanaimo Street, Venables Street and Victoria Drive received the Lakewood Bikeway (Northern Extension) Survey (see Appendix C for Surveyed Area, Appendix E for Survey Results). This survey asked residents for feedback on the proposed northern extension of the Lakewood Bikeway/TCT. A total of 1549 surveys were delivered and 80 were returned for a 5% response rate.

All of the measures proposed in this survey were supported by a strong majority of respondents. Eighty-nine percent of respondents supported the alignment of the Lakewood Bikeway Extension/TCT through their neighbourhood. Many residents also included comments to express support for the proposed alignment of this route through their neighbourhood.

FINANCIAL IMPLICATIONS

The capital costs for the Wall Street Area traffic calming measures are detailed as follows:

1.

Bulges on Wall Street at Oxford Park

$

25,000

2.

Traffic circle with corner bulges at Eton/Wall

$

42,000

3.

Corner bulges at Trinity/Wall

$

31,000

4.

Corner bulges at Penticton/Wall

$

22,000

5.

Removal of Temporary measures

$

1,000

 

TOTAL:

$

121,000

 

Funding requested from Streets Basic Capital Unappropriated Account (Traffic Calming) 13/32/9810/999:

$

121,000

       

The capital costs for the measures specific to the bikeways are detailed as follows:

1.

Street bulge at Lakewood/Adanac

$

10,000

2.

Path through Templeton School grounds

$

40,000

3.

Modification of existing diagonal diverter at Lakewood/Templeton

$

3,000

4.

Pedestrian/cyclist activated signal at Lakewood/Hastings (to be included under the 1999 Traffic Signal Program)

$

82,000

5.

Traffic circle at Lakewood/Pandora

$

6,500

6.

Pedestrian/cyclist activated signal at Lakewood/Dundas

$

82,000

7.

Bikeway pavement markings/signage

$

8,600

 

TOTAL:

$

232,100

 

Funding requested from Streets Basic Capital Unappropriated Account (Traffic Calming) 13/32/9810/999:

$


16,500

 

Funding requested from Streets Basic Capital Unappropriated Account (Bicycle Network) 12/31/6903/999:

$

133,600

 

Funding requested in advance of the 1999 Traffic Signal Program

$

82,000

       

In addition to the proposed capital costs for the Wall Street Area Traffic Plan and bikeways, maintenance budgets require an increase in funding. Commencing in 2000 and without offset the following increases are recommended:

Staff have applied for cost-shared funding from the Province's Cycling Network Program (CNP) for the proposed Burrardview and Lakewood Bikeways. This includes all of the capital costs associated with the Burrardview and Lakewood Bikeways including the Wall Street traffic calming measures. If these projects are approved by Council and accepted for CNP funding (announcement in Spring 1999), the construction costs may be reduced by up to 50%.

IMPLEMENTATION PLAN

Traffic calming measures for the Wall Street Area Traffic Plan, Burrardview Bikeway, and Lakewood Bikeway extension would be installed after April 1999. The purpose of this delay is to await the announcement of any funding from the Cycling Network Program.

Also prior to implementation, the working route name "Burrardview" Bikeway will be reviewed with the Greenways Team in an effort to create a common greenway and bikeway name for Wall Street.

COMMUNICATIONS PLAN

Prior to implementation of approved measures, residents in the affected neighbourhoods will be notified with a letter.

CONCLUSION

This revised Wall Street Area Traffic Plan, developed jointly by City staff and neighbourhood residents, addresses the remaining concerns regarding traffic speed and stop sign violations in the Wall Street Area. This plan has been designed to ensure compatibility with the future greenway implementation along Wall Street. In addition, the proposed northern extension of the existing Lakewood Bikeway and the proposed Burrardview Bikeway have been selected as part of the preferred route of the Trans Canada Trail. By coordinating construction and public consultation for these projects, cost savings are achieved. The Wall Street Area Traffic Plan and the proposed bikeways, as part of the Trans Canada Trail, have all received very strong popular support from area residents.

NOTE FROM CLERK: APPENDICES A-C NOT AVAILABLE ONLINE. ON FILE IN THE OFFICE OF THE CITY CLERK.

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