Agenda Index City of Vancouver

ADMINISTRATIVE REPORT

TO:

Standing Committee on Planning and Environment

FROM:

Director of City Plans and General Manager of Engineering Services

SUBJECT:

Development of the Ridgeway Greenway - East Extension

 

RECOMMENDATION

GENERAL MANAGERS’ COMMENTS

COUNCIL POLICY

On July 18, 1995, Council adopted the Vancouver Greenways Plan.

On May 27, 1997, Council approved the Vancouver Transportation Plan.

On March 9, 1999, Council approved the route of the Ridgeway east extension from Victoria Drive to Boundary Road.

On May 18, 1999, Council approved 1999 funding for the Ridgeway public art projects.

SUMMARY AND PURPOSE

The purpose of this report is to obtain Council approval for the design of the Ridgeway east extension and the allocation of funds for its construction and maintenance, as outlined in this report.

The east extension of the Ridgeway Greenway has been the subject of an extensive community consultation process, including confirmation of the route in its current alignment. Throughout this process, ideas for the development of the greenway were suggested by residents and other groups and agencies and elaborated by Greenways staff. Area residents were recently surveyed on the major measures that diverted or calmed traffic along the route and their comments on other greenway features were solicited.

The majority of the proposed greenway features were supported. However, a partial road closure of Kerr Street south of 45th Avenue was not supported and is not recommended. Two proposed traffic diverters on 45th Avenue at Rupert Street were not supported and alternative traffic calming measures are recommended instead. One of these, a chicane, is a traffic calming technique new to Vancouver and is therefore recommended on an initial temporary basis. Two other traffic diverters, at Clarendon Street and Boundary Road, are recommended to be installed on a six-month trial. Although there was significant opposition to these diverters, they were supported by a majority area-wide and more strongly supported by residents along the greenway route. Residents affected by the trial measures will be surveyed after six months to determine the level of support for making them permanent and the results of the survey will be reported back to Council if necessary.

Other greenway features not affecting traffic movement, such as seating areas, public art, enhanced lighting and other amenities for pedestrians and cyclists, are also proposed. Design details for these special places along the greenway will be further developed and reviewed with adjacent residents. Construction will commence once the designs are complete.

BACKGROUND

Ridgeway Greenway Status

In July 1995, Council adopted the Vancouver Greenways Plan. The first primarily on-street greenway to be built, the Ridgeway, is complete from Victoria Drive to Granville Street. Construction of the Ridgeway West is underway between Granville and Blanca Streets except for one section requiring further public consultation. The Ridgeway East, when complete, will provide the eastward link to Central Park in Burnaby.

Ridgeway East Route Selection

The Greenways Plan identified the corridor of the eastern section of the Ridgeway between Victoria Drive and Boundary Road as approximately along 38th Avenue, Earles Street and 47th Avenue. The Ridgeway Bikeway was approved on a similar alignment in July, 1997 (38th Avenue, Earles Street and 45th Avenue) and constructed in 1998.

Two public meetings were held in the area in June, 1998 to initiate public consultation on greenway design. At those meetings, and through subsequent letters and phone calls, some residents expressed concerns about the proposed greenway route and the speed and volume of vehicles along Earles Street in particular. Consequently, area residents were surveyed in January 1999 on alternate north-south and east-west route options. An open house was held in February 1999 to discuss the route options and survey. The majority supported a route along 38th Avenue between Victoria Drive and Nanaimo Street, Nanaimo Street between 38th and 45th Avenues, and 45th Avenue between Nanaimo Street and Boundary Road. Council adopted this route on March 9, 1999.

Ridgeway East Design Process

Throughout the public consultation process, staff have been soliciting comments and ideas. A public meeting was held on April 13, 1999 where the public were invited to discuss preliminary ideas generated by staff for the Ridgeway east extension. Based on comments received from the public and from the Neighbourhood Transportation Branch, these ideas were developed to include traffic diverting, traffic calming and other greenway features. A survey outlining these design features was distributed to area residents. A second open house was held on June 14, 1999, to discuss the proposed design features and to answer any questions before residents completed their surveys. A similar meeting was held on June 15, 1999 at Orchard Park with residents and a representative of BCHMC to discuss concerns directly related to their property, a major housing development flanking Nanaimo Street between 41st and 45th Avenues. In addition to the public meetings, letters were sent to residents or institutions most directly affected by proposed changes, including proposed seating areas.

DISCUSSION

Survey Results

Approximately 2677 surveys were hand delivered to residents within the area illustrated in Appendix A. The survey area was subdivided into four areas to ensure residents voted on the proposals affecting them most directly. An additional 175 were mailed to people who owned property but did not live within the area. The survey return rate from area residents was 17.5% and virtually all respondents resided within the survey area. Tables illustrating the survey results of the 499 respondents are included in Appendix A, Survey Results. A list of representative comments, suggestions and ideas received with the surveys and throughout the public consultation process is included as Appendix B.

The purpose of the survey was to determine the level of support for the proposed greenway features, which are illustrated on the plans included as Appendix C. These fell into three categories:

· measures that divert traffic, such as right-in or right-out diverters and partial road closures;
· measures that calm traffic, such as traffic circles, corner bulges and speed humps; and,
· features that do not affect traffic movement, such as seating areas, public art, enhanced lighting and other amenities for pedestrians and cyclists.

Traffic Diversion Measures

Three types of traffic diverters were proposed to reduce commuter shortcutting along 45th Avenue and to improve pedestrian and cyclist safety: four right-in and right-out diverters; one partial road closure; and one turning restriction during peak hours. A description of the proposed traffic diversion measures and the level of public support for them is included in Appendix A, Discussion of Survey Results.

The two traffic diverters proposed for 45th Avenue east and west of Rupert Street had majority support from residents along the route (65% east diverter and 68% west diverter) but low support from area-wide residents (45% east diverter and 48% west diverter). Consequently, these diverters are not recommended. Rather, traffic calming measures (central medians and a chicane) are recommended instead. These are described and illustrated in Appendix A.

The traffic diverters proposed for 45th Avenue west of Clarendon Street and at Boundary Road were opposed by a significant number of residents but had majority support area-wide (both 58%) and stronger support from residents living along 45th Avenue (71% and 81% respectively). These two diverters are recommended for installation on a six-month trial basis. Staff will monitor traffic within the vicinities of the diverters and residents will be surveyed to determine whether they should be made permanent. Staff will report back to Council on the survey results if necessary.

Traffic Calming Measures

A variety of traffic calming measures, including raised crosswalks, corner bulges, speed humps, traffic circles, and central medians, have been proposed along the Ridgeway east extension to slow traffic, to increase safety and encourage commuters to use arterial streets. All traffic calming measures surveyed received strong support and are recommended to be installed on a permanent basis. A description of the proposed traffic calming measures and the level of public support for these measures is included in Appendix A, Discussion of Survey Results.

Staff will monitor the impact on traffic in the survey area that these measures may have, conduct surveys and report back to Council if any significant concerns are raised.

As mentioned above, the diverters at Rupert Street are not recommended due to low support. Traffic calming measures are recommended instead: central medians on 45th Avenue on both the east and west sides of Rupert Street and a three-section chicane west of Rupert Street between Killarney Park and Weir School (refer to the description and illustration in Appendix A). These will slow, rather than divert, traffic along 45th Avenue between Weir School and Killarney Park and two-way through traffic will be maintained.

Other Greenway Features

Beyond traffic diverters, and traffic calming measures, greenways typically include features that add pedestrian and cyclist amenities to the neighbourhood, such as seating areas. Where supported by local residents, seating areas can include benches, landscaping, drinking fountains and pedestrian lighting. Other greenway amenities include audible crossing signals, signal actuation buttons for cyclists, infill street trees, bike racks, interpretive and directional signage, and planting areas with native and drought tolerant species.

1. Special Areas

Residents most affected by proposed changes, including seating areas, were contacted by letter. Proposed seating areas were also indicated on the survey maps and design ideas and comments were solicited on the survey comment forms. Designs for these special areas (included in Appendix D) were displayed at the June, 1999 public information meetings to generate public comment. All of the proposed designs have been reviewed by a Vancouver Police Department Crime Prevention Through Environmental Design officer.

Three of these areas have been identified for special treatments that will require further participation of adjacent residents and other groups. Staff will continue to work with the residents and management of Orchard Park to introduce pedestrian amenities, increase accessibility and demonstrate City environmental programs along the Ridgeway, such as the rain barrel program and composting. The north-west corner of 45th Avenue and Clarendon Street will be developed to demonstrate environmentally friendly ways to deal with stormwater runoff. The areas of Killarney Park and Weir School along 45th Avenue between Killarney and Rupert Streets will become a demonstration of WaterWise gardening, with participation of the Vancouver School Board, the Park Board, the Weir Elementary Parents Advisory Committee, Water Design Branch staff and possibly other groups such as the Evergreen Foundation and the Native Plant Society of BC.

Seating was proposed at the retail plaza on the north-east corner of Kerr Street and 45th Avenue, in front of existing planters on the plaza, since the market here was the only retail outlet for refreshments along the Ridgeway. However, seating in this location is not recommended due to concerns expressed by neighbours.

2. Public Art

Public art is used to add interest and add to neighbourhood character. Council recently approved an allocation of 1999 funding for public art projects along the Ridgeway. It is anticipated that the public art program for the Ridgeway east extension will include a continuation of pole art (sculptural elements placed on utility poles) and integrated or interpretive public art at the proposed seating area in Killarney Park at Killarney Street and 45th Avenue.

3. Street Lighting

Street lighting improvements have been proposed subsequent to a lighting audit of the Ridgeway east extension. Additional light standards will be installed along 38th Avenue between Victoria Drive and Nanaimo Street; existing lights along Nanaimo Street between 38th and 39th Avenues will be relocated; and pedestrian level lighting will be installed on existing light standards along Nanaimo Street between 41st and 45th Avenues. Pedestrian light standards are proposed for the traffic circle at Nanaimo Street and 45th Avenue and for the seating area in Killarney Park.

4. Transit Shelters and Seating

To enhance the interface of greenways with public transit, the Traffic Management Branch is reviewing the installation of transit shelters and/or seating at bus stops along or adjacent to the Ridgeway east extension.

5. Waste Receptacles

Waste receptacles will be installed at Orchard Park and in Killarney Park. These will be emptied as required by BCHMC and Park Board maintenance staff respectively.

6. Local Improvements

Road construction of the section of 45th Avenue between Tyne and Arlington Streets, with substantial corner bulges, new curbs and street trees, is now underway through a Local Improvement. Another Local Improvement to Toderick Street south of 45th Avenue will improve access between the Ridgeway and MacCorkindale Elementary School. Other Local Improvement projects are being invited to enhance sidewalks along and providing access to the greenway.

ENVIRONMENTAL IMPLICATIONS

Greenways benefit the environment by enhancing the opportunities to walk and cycle in the city. As well as increasing the numbers of trees and other plants along the greenway routes, civic environmental initiatives are promoted, such as the composer and downspout disconnect programs.

SOCIAL IMPLICATIONS

Greenways contribute positively to society through the provision of increased opportunities for active and passive recreation, community interaction and healthier lifestyles.

FINANCIAL IMPLICATIONS

A total of $831,700 is recommended for the construction of the Ridgeway east extension, as described in Appendix E, of which $48,400 is from existing approved programs. Operating budget increases (without offset) required as a result of this project are also outlined in Appendix E.

In order to optimize funding and ensure project co-ordination with other City departments, a variety of City resources have been proposed. For example, curb drops will be installed where required through the Curb Ramp Program; street tree infilling will be done through the Park Board’s regular Street Tree Program; street lighting upgrades will be cost shared with the Street Lighting Infill Program; and some pedestrian enhancements are being pursued through the Local Improvement process. Public art funding from the Office of Cultural Affairs for the Ridgeway east extension has already been approved by Council.

An application will be made to the Provincial Government’s Cycling Network Program for supplemental funding for cycling-oriented changes along the route and ICBC will be contacted for cost sharing on those changes which help address the high accident rates at specific locations.

IMPLEMENTATION PLAN

Construction of the Ridgeway east extension can begin as early as the Fall, 1999 with anticipated completion in 2000. Two traffic diverters and the chicane will be installed on a trial basis for six months after which staff will survey area residents and report back to Council if necessary. The development of special areas along the greenway which involve further participation of the public and other groups and agencies may proceed at different rates.

CONCLUSION

The development of the Ridgeway between Victoria Drive and Boundary Road, as outlined in this report, provides many environmental and social benefits for the residents of Vancouver.

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RIDGEWAY EAST EXTENSION SURVEY RESULTS

Survey Area

This map illustrates the area surveyed along the Ridgeway east extension. The survey area was subdivided into four areas to ensure residents voted on the proposals affecting them most directly.

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Survey Results

Approximately 2677 surveys were hand delivered to residents within the area and an additional 175 were mailed to people who owned property but did not live within the area. The survey return rate from area residents was 17.5% and virtually all respondents resided within the survey area. The following table illustrates the survey results of the 499 respondents.

Ridgeway East Extension Survey - Level of Support

AREA 1 Total responses: 70/444 (14)

AREA 2 Total responses: 91/612 (19)

AREA 3 Total responses: 128/560 (35)

Clarendon Diverter - combined Areas 2 and 3 58% 71%

AREA 4 Total responses: 210/1236 (46)

Rupert West diverter - combined Areas 3 and 4 48% 68%
Rupert East diverter - combined Areas 3 and 4 45% 65%

Total responses: 499/2852
Over-all response rate: 17.5%
Arlington and 47th Traffic Circle Survey

In addition to the above survey results, 60 surveys were hand delivered to residents within one block of the intersection of Arlington Street and 47th Avenue to determine the level of support for the traffic circle proposed for that intersection. The traffic circle was proposed by staff in response to comments received through survey comments and at the June, 1999 public information meeting at Weir School regarding the impact of the traffic diverter at Boundary Road. The survey return rate from area residents was 25% and 87% (15) respondents supported the traffic circle.

Discussion of Survey Results

The purpose of the survey was to determine the level of support for the proposed greenway features, which are illustrated on the plans included as Appendix C. These fell into three categories:

· measures that divert traffic, such as right-in or right-out diverters and partial road closures;
· measures that calm traffic, such as traffic circles, corner bulges and speed humps; and,
· features that do not affect traffic movement, such as seating areas, public art, enhanced lighting and other amenities for pedestrians and cyclists.

The proposed traffic diverting and traffic calming measures are described below. A discussion of the level of support for these measures is included.

Traffic Diversion Measures

Three types of traffic diverters were proposed to reduce commuter shortcutting along 45th Avenue and to improve pedestrian and cyclist safety: four right-in and right-out diverters; one partial road closure; and one turning restriction during peak hours.

1. Right-in and Right-out Diverters

Taken together, the right-in and right-out diverters were intended to prevent traffic from shortcutting through the neighbourhood between Boundary Road and Victoria Drive while minimizing inconvenience to local residents. Many residents wanted traffic reduced along 45th Avenue but also used it as a primary access route through the neighbourhood. Consequently, support for the diverters was lower than for other greenway features.

The diverters proposed for 45th Avenue east and west of Rupert Street had majority support from residents along the route (65% and 68% respectively) but low support from area-wide residents (45% and 48% respectively) due to concerns about access to Weir School and Killarney Community Centre. Area-wide residents were also concerned about the increase in traffic on their streets and in their lanes as a result of these diverters. Therefore, neither arerecommended. Non-diversionary measures, central medians on both the east and west sides of Rupert Street and an alternate traffic calming measure west of Rupert Street, are proposed instead (refer to Traffic Calming below).

The right-in, all-out diverter proposed at 45th Avenue and Boundary Road had majority support of area residents (58%) and high support of residents along the route (81%) and is therefore recommended to be installed for a six-month trial. Concerns with this diverter included fears by residents along streets parallel to 45th Avenue, particularly those living along 47th Avenue, that they would experience significant increases in traffic. Since 45th Avenue has been closed for an extended period due to GVRD water main construction, their fears are justified. To respond to their concerns, it is also recommended that a traffic circle be installed at the intersection of 47th Avenue and Arlington Street and that traffic in the area be monitored during the trial period. The sixty residents within one block of the proposed traffic circle have been surveyed and support its installation (100% of 12 respondents) so it is recommended to be installed on a permanent basis.

The right-out, all-in diverter proposed for 45th Avenue west of Clarendon and Elliott Streets was supported by a majority of area residents (58%) with higher support from residents along the route (71%). While the concerns of residents, primarily north-west of this intersection, regarding access are acknowledged, it is recommended that the diverter be installed for a six-month trial.

Staff will monitor the traffic in the areas surrounding the two traffic diverters recommended for installation before and during the six-month trial period and then survey affected residents to determine the level of support for making them permanent. Staff will report back to Council on the results of the survey if necessary.

2. Partial Road Closure

A partial road closure was proposed for Kerr Street south of 45th Avenue to prevent traffic shortcutting through the neighbourhood north from Waverley Avenue. Residents along the route supported the partial road closure (64%) but area-wide resident support was low (46%) so it is not recommended.

3. Turn Restriction

In addition to the traffic diversion measures mentioned above, residents were also surveyed on a “No Left Turn” restriction at 41st Avenue and Nanaimo Street for eastbound traffic during peak hours (7:00 to 9:30 am and 3:00 to 6:00 pm) to reduce shortcutting traffic along Nanaimo Street. Area resident and on-route support was high (both 64%) so permanent installation of appropriate signage is recommended.

Traffic Calming Measures

A variety of traffic calming measures have been proposed along the Ridgeway east extension to slow traffic to increase safety and encourage commuters to use arterial streets. All traffic calming measures surveyed received strong support and are recommended to be installed on a permanent basis. Staff will monitor the impact on traffic in the survey area that these measures may have, and report back to Council if any significant changes are necessary.

Several of the proposed traffic calming measures warrant special mention.

1. Raised Crosswalks

A raised crosswalk, which functions like a sidewalk across the top of a speed hump and improves pedestrian safety by increasing visibility and accessibility, was adopted as a pilot project by Council on July 6, 1999 for a crossing at Laurel Street and 24th Avenue. Two additional raised crosswalks are proposed for the Ridgeway as a potential extension of this pilot. The proposal for a raised crosswalk across Nanaimo Street north of 45th Avenue had high support (78% area-wide, 100% on-route), since there are currently no accessible crossings of Nanaimo Street between 41st and 45th Avenues, and is recommended. The raised crosswalk will also allow safe and convenient special transit and taxi access for disabled Orchard Park residents. A second raised crosswalk proposed across 45th Avenue at Killarney Street, to enhance the pedestrian connection between Weir School and Killarney Park, also had high support (79% area-wide, 86% on-route) and is recommended.

2. Speed Humps

Three speed humps were proposed along Nanaimo Street between 41st and 45th Avenues to reduce speeding. These also had high support (75% area-wide, 100% on-route) and are recommended on the basis of the success of the speed hump trials to date. A report recommending expansion of the speed hump program is anticipated for Council consideration in September, 1999.

3. Traffic Circles

Traffic circles proposed for the intersections of 40th Avenue and Nanaimo Street, and of 45th Avenue and Nanaimo, Wales and Arlington Streets, enjoyed high area-wide support (79%, 73%, 70% and 67% respectively) and higher support from residents along the route (86%, 90%, 80% and 85% respectively). All are recommended for permanent installation. As mentioned above, an additional traffic circle is also recommended at 47th Avenue and Arlington Street to address resident concerns with the proposed traffic diverter at 45th Avenue and Boundary Road.

4. Central Medians

Central medians have been proposed in various locations along 45th Avenue to slow traffic, especially through offset intersections, by controlling turning movements. They also increase pedestrian safety by providing a physical refuge for pedestrians crossing the street. There was support for all of the central medians (refer to tables above) but concern was expressed by adjacent property owners regarding loss of on-street parking. It is recommended that all proposed medians be installed on a permanent basis but that their length be shortened where appropriate to minimize inconvenience to residents.

5. Chicane (with Central Medians)

As mentioned above, the diverters at Rupert Street are not recommended due to low support. A traffic calming alternative, illustrated below, is recommended instead. Central medians are proposed for both the east and west sides of Rupert Street on 45th Avenue, and a three-section chicane west of Rupert Street between Killarney Park and Weir School. These will slow, rather than divert, traffic along 45th Avenue between Weir School and Killarney Park and two-way traffic will be maintained. The most westerly of the chicane sections will also help to define the student drop-off zone on the north side of 45th Avenue east of Killarney Street. The Vancouver School Board intends to remove the three existing portable classrooms adjacent to 45th Avenue and create an improved school entrance in this area. Trial chicanes have been approved or installed in a couple of locations (e.g., on Napier Street at Semlin Street and on Yew Street at 51st Avenue). However, it is recommended that the proposed chicane be installed on a temporary basis to allow for any modifications if required.

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SUMMARY OF COMMENTS

The following is a list summarizing the most commonly-expressed comments, suggestions and ideas received with both surveys (route selection and greenway features) and through the public consultation process (letters, phone calls, e-mails and meetings with residents on site).

1. The speed and volume of traffic along 45th Avenue is a serious problem, especially vehicles using it as an arterial connection between Boundary Road and Victoria Drive.
2. 45th Avenue is our main route for getting into and around our neighbourhood so should be an arterial.
3. Don’t put in traffic diversions to inconvenience us.
4. The speed of traffic next to Weir School is a serious problem.
5. Diverters will increase traffic on other streets and in lanes.
6. Speeding along Nanaimo Street is a problem, especially with the number of children walking to the schools, and traffic calming is required.
7. Cars around schools are a big problem.
8. Tyne Street between Kingsway and 45th Avenue is hazardous and needs to be paved.
9. Central medians will eliminate on-street parking.
10. No one stops for stop signs.
11. We prefer traffic calming to traffic diversion.
12. The wide boulevards between 39th and 41st Avenues along Nanaimo Street are suitable as seating areas and walkways.
13. Traffic measures may delay emergency service vehicles.
14. Would like to see a traffic circle at Nanaimo and 45th to improve safety.
15. Traffic signal is required at Clarendon/Elliott and 45th Avenue (and at 46th Avenue as well).
16. Access to Weir School and Killarney Community Centre is already limited and shouldn’t be further restricted.
17. Many children, seniors and people with disabilities live in Orchard Park and need to be accommodated.
18. Traffic calming on the adjacent streets and in the lanes is required if you put in a diverter at 45th Avenue and Boundary Road.
19. We need more trees, lighting, park benches, gardens and public art.
20. The route should be safe for less confident cyclists.
21. Many seniors and students cross at Elliott and 46th Avenue.
22. Killarney Park needs improvements, especially paths around and through it.
23. Nanaimo Street is not accessible for anyone wanting to cross in Orchard Park.
24. Stress the importance of pedestrians, not just cyclists.
25. We like the improvements along the Ridgeway already built.

SURVEYED GREENWAY FEATURES

This map illustrates the route of the Ridgeway east extension, as approved by Council, and the extent of the area surveyed. Details for each of the four subareas and the proposed greenway features surveyed within each of the four subareas follow.

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PROPOSED SPECIAL AREAS

The following are illustrations of conceptual designs presented to the public at the information meetings held on June 14 and 15, 1999. These have been modified where appropriate to incorporate comments received from the public and all have been reviewed by a Vancouver Police Crime Prevention Through Environmental Design officer.

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RIDGEWAY EAST EXTENSION:
FUNDING SOURCES AND PROPOSED EXPENDITURES

Table A summarizes proposed sources of City funding. Increases in operating budgets as a result of this project are summarized in Table B. Costs for the four major categories of proposed Ridgeway east extension expenditures (traffic diversion measures, traffic calming measures, special areas and other greenway features) are summarized in Table C.

TABLE A: SOURCES OF FUNDING

TABLE B: REQUIRED INCREASES IN OPERATING BUDGETS

In addition to the proposed capital costs, operating budgets must be increased as a result of this project. Commencing in 2000 and without offset, the following operating budget increases are required:

TABLE C: PROPOSED EXPENDITURES

ATTACHMENTS OR INSERTS THAT DO NOT HAVE ELECTRONIC COPY ARE AVAILABLE ON FILE IN THE CITY CLERK'S OFFICE

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