Loading...
HomeMy WebLinkAboutDSD-2021-63 - Iron Horse Trail Crossings and Cycling Spot FixesREPORT TO:Community and Infrastructure Services Committee DATE OF MEETING:June 14, 2021 SUBMITTED BY:Cronkite, Barry, Director, Transportation Services, 519-741-2200 ext. 7738 PREPARED BY:Kropf, Darren, Active Transportation Planning Project Manager, 519-741-2200 ext. 7314 WARD(S) INVOLVED:Wards9, 10 DATE OF REPORT:June 3, 2021 REPORT NO.:DSD-2021-63 SUBJECT:Iron Horse Trail crossings andcycling spot fixes RECOMMENDATION: That pedestrian crossovers (PXOs) be installed on the Iron Horse Trail at Union Boulevard, Glasgow Street, Gage Avenue, West Avenue, Mill Street, Madison Avenue, and Kent Ave; and, That stopping be prohibited at any time 15 metres from the crossing at each approach, and ten (10) metres immediately following each crossing; and, That raised crossings be constructed attheIron Horse Trail at Glasgow Street, Mill Street, and Madison Avenue;and, That aprojectbudget of $250,000 be allocated from theremaining Ontario Municipal Commuter Cycling grant and the Iron Horse Trail improvements accountfor installation of PXOs and raised crossings on the Iron Horse Trail;andfurther, That the existing stop controls at Young Street/Ahrens Avenue be reversed to require eastboundand westboundtraffic on Ahrens Avenue to stopat Young Street while permitting traffic on Young Street to travel through Ahrens Avenue without stopping; and, That the existing stop controls at Chapel Street and Merner Avenue be reversed to require northboundand southbound traffic on Merner Avenueto stop at Chapel Streetwhile permitting traffic on ChapelStreet to travel through Merner Avenue without stopping; and, That the existing stop controls at ChurchStreet and Cedar Streetbe reversed to require northboundand southbound traffic on Cedar Streetto stop at Church Street *** This information is available in accessible formats upon request. *** Please call 519-741-2345 or TTY 1-866-969-9994 for assistance. while permitting traffic on ChurchStreet to travel through Cedar Streetwithout stopping; andfurther, That four parking spaces on Francis Street (between Charles Street West and Hall’s Lane West) berestricted between6:30 to 9:30 a.m.,2:30 to 6:00 p.m.and 10:30 to 11:30 p.m.to permit buslay-by areas until the Regional Transit Hub is operational; andfurther, That the Uniform Traffic Bylaw be amended accordingly. REPORT HIGHLIGHTS: This report provides proposed improvements on allIron Horse Trail crossingsalong municipal roadways, including pedestrian crossovers (PXOs), some of which will be combinedwith refuge islands and/orraised crossings. Funding for the crossings is accounted for by theremaining funds in the Ontario Municipal Commuter Cycling grant fundingandIron Horse Trail improvement account. Community engagement occurred during the Iron Horse Trail Improvement Strategy (2015)and an open house in 2019. The desire for safer trail crossings was also identified in consultations forComplete Streets, Cycling and Trails Master Plan and Vision Zero.The stop sign and parking restrictions are required for implementation of the Downtown Cycling Grid, which included over 1,200 residents consulted during the finalphase of community engagement. This report supports People-friendly Transportation. BACKGROUND: The Iron Horse Trail is the city’s busiest trail, with over 250,000 trips a year by pedestrians and cyclists of all ages andabilities. Guided by the Iron Horse Trail Improvement Strategy (2015), recent investments in the trail have improved the trail’s function, safety and comfort, including trail widening, benches, lighting and landscaping. Continuing with these improvements, city staff is proposing to improve safety and accessibility at all IronHorse Trail crossingsat municipal roadways,with the installation of Pedestrian Crossovers (PXOs)and in some casesraised crossings or refuge islands. This work is a continuation of the Ontario Municipal Commuter Cycling Program. In 2020, tenders for eligible projects under the Ontario Municipal Commuter Cycling program came in under budget, leaving $110,000 of grant funding to spend in 2021. Improvements to the Iron Horse Trail crossings is listed on the city’sOMCC eligible project list. REPORT: Iron Horse Trailstreet crossings The Iron Horse Trail Improvement Strategy included“Recommendation 5.3 Trail Use, Safety and Accessibility.”Trail crossings werethe top priority identified by the community to improve trail safety.Further, crossings of a roadway are generally the area of greatest safety concern for any trail. Staff’s intent is togrant trail usersthe legal right of wayat all municipal road crossings along the IronHorse Trail.Additionally, physical design measureshave been included at major crossingsthat demonstrate trail user priority andimprove accessibility andsafety. About Pedestrian Crossovers (PXOs) PXOs provide pedestrians with crossing opportunities by requiring motorists to yield to pedestrians within the crosswalk.Thepresence of a pedestrian in the crosswalk requires the driver of a vehicle approaching the crossover tostop before entering the crossover. Ontario Traffic Manual(OTM)Book 15: Pedestrian Crossing Treatmentsprovides guidance for the selection and design of PXOs.PXOs are recommended when the following conditions are met: 100 or more pedestrians observed crossing over an 8-hourperiod; 750 vehicles per 8-hourperiod; No other controlled crossing within 200 m; Adherence to Ontario Traffic Manual Book 15 lane configuration and traffic volume conditions; and Posted speed limit It is worth noting that these requirements are subject to an assessment using sound technical engineering judgement.Further, if the site location is within 200 m of a traffic control device, a PXO can still be warranted if there is a “requirement for system connectivity” or the location is “on pedestrian desire lines.” Based on these criteria, city staff support PXOs at all city-owned crossings.See Attachment A for warrant justification. The Region of Waterloosupports PXOs on city-owned streets where analysis has found there will not be concerns with adjacent signal operations.Atthe Region’s request,a queuing analysis was conducted and the resultsindicate that queuing is not expected to be an issue, with the exception of GlasgowStreet, where westbound traffic may back up into the PXO during PM peak hours.Due to this concern, the Region does not support a PXO at Glasgow Street and notes any future operational concerns because ofthe proposed PXOwould be the city’s responsibility to address. There are four types of PXOs, as directed by OTM Book 15. See Attachment Bfor the two types recommended in this report. The distinguishing feature is Type B includes flashing beacons –activated by pedestrians with a push button–while Type D does not include the beacons.Both types grant legal right of way to pedestrians, butthe flashing beacons are used on higher volume streetsfor greater visibilityand awareness to drivers. Currently, legislation does not allow the city to provide crossrides at PXOs,meaning cyclists are to dismount and cross as a pedestrian. Cityof Kitchenerstaff have advocated alongside othermunicipalities for inclusion of crossridesat PXOs during the update to OTM Book 18: Cycling Facilitiesin 2019-2021and througha letter to the Ministry of Transportation sent through theRoad Safety Committee of Ontario(ROSCO) on March 24, 2021.In themeantime, city staff will installthe proposed PXOsin such a waythat crossridescan be easily installedif future legislation allows. Physical measures City staff observationhas found that driver yield compliance at PXOs can be improved with physical measures such as raised crossings, refuge islands and street narrowing.City staff intend to continue studying driver compliance at PXOs.In addition to driver yield compliance, there are additional benefits of raised trail crossings, including greater visibilityof vulnerable usersandimproved accessibility. The raised crossings are being designed to remain smooth and flush with the trail, which greatly improves accessibility of the crossing. Thiswillrequirenew or relocated catch basins for drainage, which has been accounted for within the overall project scope and budget. Breakdown of all city-owned crossings Street crossingCurrent conditionsProposed improvements Union BoulevardRefuge islandPXO Type B Glasgow StreetNo crossing featuresPXO Type Band raised crossing Gage AvenueNo crossing featuresPXO Type D(In scheduled reconstruction, consider raised crossing) West AvenueRefuge islandPXO Type D Mill StreetNo crossing featuresPXO Type Band raised crossing Madison AvenueNo crossing featuresPXO Type Dand raised crossing Palmer AvenueNo crossing featuresYield sign Kent AvenueNo crossingfeaturesPXO TypeD(In scheduled reconstruction, consider raised crossing) The crossings at Victoria Street, Queen Street, Courtland Avenue, Borden Avenue and Ottawa Street are under the jurisdiction of the Region of Waterloo.Stop signs and “Wait forGap”signs will be installed on trail approachesto regional roadsso trail users know they do not have the right of way over vehicles. In addition, city staff are recommending a new form of vehicle control be added to trail crossings todeter illegal cars from accessing the trails but still allow access for maintenance vehicles. These flex stakes are the same standard as seasonal traffic calming, but with customartwork that indicates illegalusers (i.e. no cars allowed)and intended users(i.e. pedestrians and cyclists allowed). These will be installed on all city and regional street trail crossings, starting with the Iron Horse Trail. Re-orienting stop signsfor Neighbourhood Bikeways In DSD-20-203 ProtectedDowntown Cycling Grid, City Council approved neighbourhood bikeways on Young Street, Chapel Street and Cedar Street. Upon further analysis for construction this summer, staff recommends switching the orientation of the existing stop controlat theintersections of Young/Ahrens, Chapel/Merner and Church/Cedar.This is guidedby OTM Book 18,whichstates: "Priority should be given to people cycling when a neighbourhood bikeway crosses a minor street, toreduce the travel time for cyclists. It is desirable to provide a continuous bikeway without stop control for cyclists." The new stop controlwould: require eastboundand westboundtraffic on Ahrens Avenue to stop at Young Street while permitting traffic on Young Street to travel through Ahrens Avenue without stopping; require northboundand southbound traffic on Merner Avenueto stop at Chapel Streetwhile permitting traffic on ChapelStreet to travel through Merner Avenue without stopping;and require northboundand southbound traffic on Cedar Streetto stop at Church Street while permitting traffic on ChurchStreet to travel through Cedar Streetwithout stopping. According toOTM Book 5, where right-of-way is being reassigned from onestreetto another crossing street, through theelimination of an existing stopsign control and the installation of stopsign controlon the previouslyuncontrolled roadway, an introductory period isrequired to safely carry out the transition.This includes an all-way stop for 15 days, with warning signage of the upcoming removal of stop signs on the original streets with stop signs. Francis Street parking restrictions In DSD-20-203 Protected Downtown Cycling Grid, City Council approved the conversion of Joseph Street to one-way operationin order to install new separated bike lanes. While Joseph Street does not have bus stops, GRT had been using Joseph Street for Route #34 as a turn-around, as well as the loadingbayson Water Street as layby waiting areas. As an alternative, GRT has requested the use of the parking bay on the east side of Francis Streetbetween Charles Street and Hall’s Lane, during the times of 6:30 to 9:30 a.m., 2:30 to 6:00 p.m.and 10:30 to 11:30 p.m.These times do not conflict with peak parking demand for thesespaces and is not expectedto cause parking scarcity, given the parking bay across the street will remain available for use during the time of restrictions. This parking restriction is expected to be removed when the King Victoria Transit Hub is in operation. STRATEGIC PLAN ALIGNMENT: This report supports People-friendly Transportation. FINANCIAL IMPLICATIONS: Capital Budget–Thetotal cost of $250,000is accounted for through previously approved budgets. UpgradeTotalCostBudget Line PXOs and raised $240,000OMCC (up to $110,000) & crossingsIron Horse Trail account (remaining) Regional road stop$2,000Iron Horse Trail account control Flex stake vehicle control$7,000Iron Horse Trail account Re-oriented stop control $1,000General Sign operating at Young/Ahrens,budget Chapel/Merner and Church/Cedar& Francis Street parking bay signage Total$250,000 All work is scheduled for fall 2021. The OMCC fundingmust be used prior to the end of 2021or the funds willbe returned to the province.Given this constrained timeline, staff is proposingthe creation of a new capital project to allow timely procurement of the scope of work. Operating Budget–Some additional maintenance is required of the new crossing treatments: The flashing beacons will requireminimalelectricity and electrical repairand are accounted for in the streetlight operating costs; Pavement markings are to be durable thermoplastic, requiring replacement every 5- 8 years; and Signs will need eventual replacement due to graffiti or wear and tear. Life cycle costsof the eight PXOsfor the expenses listed aboveareestimated at an annualized rate of $4,000. COMMUNITY ENGAGEMENT: INFORM –This report has been posted to the City’s website with the agenda in advance of the council/ committee meeting.Notices were mailedto properties adjacent to the crossings. CONSULT –Significant engagement occurred during thedevelopment of theIron Horse Trail Improvement Strategy in 2015, with 884 residents providing feedback. A major theme during this engagement was the need for safer road crossings: “Based on comments received through the public consultation process, a primary safety concernand identified priority is the improvement of trail-road intersections and crossings, specifically in terms of providing safer crossings with improved accessibility…This issue is the most recurring item that was brought up through the process by the community.” OnJanuary16, 2019,an open house was hosted to introduce scheduled improvements, with 84residents providing feedback.Nearly half of all comments provided were requests for safer trail crossings. In 2019, Complete Streets consultations engaged 610 residents on how to design streets for all modes of transportation. An action item was identified to provide raised crossingsto increase visibility and demonstrate priority for vulnerable users, especially at mid-block trail crossings. In 2018-2019, Cycling and Trails Master Plan consultations engaged over 3,200residents. Action 1A-4 includes thecreation of aspot improvement program for locations identified by residents as safety concerns. As seen in AppendixC, trail crossingsalong the Iron Horse Trail were identified as priorities by residents. In fall 2020, Vision Zero consultations engaged300 people on how safe they feel on city streets. The need for more frequent, safe pedestrian crossings was identified by residents as an important way to make city streetssafer. In addition, residents noted that physical design measures should accompanyPXOs to ensure drivers are fully aware of their responsibility to yield to pedestrians. On May 11, 2021, the Cycling and Trails Advisory Committee commented on the proposed plans and requested a greater use of flashingbeacons at PXOs to ensure greater driver compliance in yielding. A unanimous motion was passed: “That the committee supports the proposedplan to add PXOs and raised crossings tocity-owned streets.” OnMay27,2021, the Grand River Accessibility Advisory Committee reviewedproposed plansand offered the following comments: Really pleased to see the new raised standard that is smooth and flush, which is a great improvement for people in wheelchairs; Consistency for all trailsis really important for usersand wants to see the City of Waterloo and Region of Waterloo provide similar improvements; and Tactile guidance across the street would be helpful for people with visual impairments who find it difficult to determine the direct line of travel. PREVIOUS REPORTS/AUTHORITIES: DSD-20-203Protected Downtown Cycling Grid INS-20-015Cycling and Trails Master Plan DSD-19-235Complete Streets INS-15-058Iron Horse Trail Improvement Strategy APPROVEDBY: Justin Readman, General Manager ATTACHMENTS: Attachment A–PXO Warrants Attachment B -PXOTypes Attachment C–Spot Improvements ATTACHMENT A: PXO WARRANTS UNION STREET JustificationRequired Actual Conditions Pedestrian Warrant ValueValueSatisfied?Connectivity? 1. 8-hour Pedestrian > 100 peds200 pedsYES Volume at proposed crossover location 2. 8-hour Two-way > 750 veh4475 vehYES Vehicle Volume PXO Level 2 3. Distance from > 200 metres75 mNOYES Type B Nearest Controlled Crossing 4. Engineering Volume of vehicles suggests PXO Level 2 Type C but due to high Judgementspeedof roadway, proximity to signalsand bend in road near crossing, staff recommendgreater awareness of PXOthrough use of flashing beacons. GLASGOW STREET JustificationRequired Actual Conditions Pedestrian Warrant ValueValueSatisfied?Connectivity? 1. 8-hour Pedestrian > 100 peds200 pedsYES Volume at proposed crossover location 2. 8-hour Two-way > 750 veh3440vehYES Vehicle Volume 3. Distancefrom > 200 metres70 mNOYES PXO Level 2 Nearest Controlled Type B Crossing 4. Engineering Volume of vehicles suggests PXO Level 2 Type C but due to high Judgementspeed of roadway and proximity to signal, staff recommend greater awareness of PXOthrough use of flashing beacons. Westbound traffic queues from Belmont/Glasgow may extend through the PXO during the peak hour. GAGE AVENUE JustificationRequired Actual Conditions Pedestrian Warrant ValueValueSatisfied?Connectivity? 1. 8-hour Pedestrian > 100 peds200 pedsYES Volume at proposed crossover location 2. 8-hour Two-way > 750 veh1014vehYES Vehicle Volume PXO Level 2 Type D 3. Distance from > 200 metres80mNOYES Nearest Controlled Crossing 4. Engineering Judgement WEST AVENUE JustificationRequired Actual Conditions Pedestrian Warrant ValueValueSatisfied?Connectivity? 1. 8-hour Pedestrian > 100 peds200 pedsYES Volume at proposed crossover location 2. 8-hour Two-way > 75 veh1928 vehYES Vehicle Volume PXO Level 2 Type D 3. Distance from > 200 metres85 mNOYES Nearest Controlled Crossing 4. Engineering Judgement MILL STREET JustificationRequired Actual Conditions Pedestrian Warrant ValueValueSatisfied?Connectivity? 1. 8-hour Pedestrian > 100 peds148 pedsYES Volume at proposed crossover location 2. 8-hour Two-way > 750 veh961 vehYES Vehicle Volume PXO Level 2 3. Distance from > 200 metres60 mNOYES Type B Nearest Controlled Crossing 4. Engineering Volume of vehicles suggest Type D but due toproximity to Judgementrailway,highervehiclespeeds and arterialroad designation, staff recommend flashing beacons MADISON AVENUE JustificationRequired Actual Conditions Pedestrian Warrant ValueValueSatisfied?Connectivity? 1. 8-hour Pedestrian > 100 peds148 pedsYES Volume at proposed crossover location 2.8-hour Two-way > 750 veh1955 vehYES Vehicle Volume PXO Level 2 Type D 3. Distance from > 200 metres150 mNOYES Nearest Controlled Crossing 4. Engineering Judgement PALMER AVENUE JustificationRequired Actual Conditions Pedestrian Warrant ValueValueSatisfied?Connectivity? 1. 8-hour Pedestrian > 100 peds148 pedsYES Volume at proposed crossover location 2.8-hour Two-way > 750 veh5 vehNO Vehicle Volume Yield control 3. Distance from > 200 metres70 mNOYES Nearest Controlled Crossing 4. Engineering Extremely low vehicle volumes suggest yield control for trail Judgementusers instead of PXO KENT AVENUE JustificationRequired Actual Conditions Pedestrian Warrant ValueValueSatisfied?Connectivity? 1. 8-hour Pedestrian > 100 peds68 pedsNO Volume at proposed crossover location 2. 8-hour Two-way > 750 veh443 vehNO Vehicle Volume PXO Level 2 3. Distance from > 200 metres225mYESYES Type D Nearest Controlled Crossing 4. Engineering Consistency with rest of trail corridor justifies PXO. Further, Judgementfuture development on Courtland Avenue will generate more pedestrian and vehicle traffic. Note: Due to COVID-19 restrictions, 8-hour pedestrian counts were not conducted in person. Rather, the nearest Iron Horse Trail counter was used to justify pedestrian demand. ATTACHMENT B: PXO TYPES Level 2 Pedestrian Crossover Treatments –Type B (OTM Book 15 –Pedestrian Crossover Treatments) Kitchener examples include Jubilee Drivein Victoria Parkand King Street at Cameron Street. 1 Kitchener examples include the Henry Sturm Trail at West Avenue and Patricia Avenue and the Transit Hub Trail at Park Street. ATTACHMENT C:SPOT FIXES Cycling and Trails Master Plan: Connections Report, page 19.