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HomeMy WebLinkAboutDTS-09-071 - Dixon St & Carwood Ave - Traffic CalmingJ KITC~~R De~elopment& Technical5ervrces REPORT T0: Development & Technical Services Committee DATE OF MEETING: May 11, 2009 SUBMITTED BY: John McBride, Director of Transportation Planning PREPARED BY: Cameron Bevers, Traffic Technician (741-2369) WARD(S) INVOLVED: Forest-Rockway (5) DATE OF REPORT: April 23, 2009 REPORT NO.: DTS-09-071 SUBJECT: DIXON STREET & CARWOOD AVENUE TRAFFIC CALMING RECOMMENDATIONS: That two (2) speed humps be installed on Garwood Avenue between Courtland Avenue East and Dixon Street; That four (4) speed humps be installed on Dixon Street between Garwood Avenue and Eckert Street; That one (1) raised pedestrian crosswalk be installed on Dixon Street at Carlin Avenue; That one (1) intersection narrowing be installed on Dixon Street at Plymouth Road; That one (1) centre median be installed on Garwood Avenue approaching the intersection with Garwood Avenue. That an all-way stop control be installed at the intersection of Garwood Avenue and Dixon Street. BACKGROUND: The City of Kitchener's traffic calming policy was adopted by Council in August 2004 (DTS 04- 125). This traffic calming policy provides the framework needed to prioritize locations that are most in need of traffic calming from a traffic safety perspective. The policy also outlines the methodology and evaluation criteria required for staff to provide an unbiased and uniform traffic calming review for individual streets and communities where traffic calming is appropriate. 5-1 In December 2007, Council approved DTS Report 08-016 - "Traffic Calming Priority - 2008", which recommended that a traffic calming review be conducted for several streets in the City of Kitchener including Dixon Street. Dixon Street was given particular attention because the roadway is scheduled for a complete reconstruction in 2009. This upcoming reconstruction project provides the City with an opportunity to introduce traffic calming measures on the street at a lower capital cost, since some elements and features can be incorporated into the final street design issued for tender. Incorporating the traffic calming installation with the roadway reconstruction also results in less inconvenience for residents, since all of the construction will betaking place simultaneously. Transportation Planning has received requests from residents of the community on numerous occasions in the past to review the existing traffic conditions on Dixon Street. According to the concerns indicated, traffic is using Dixon Street as a short-cut between Courtland Avenue East and King Street East, and that this traffic is speeding, creating concerns regarding traffic and pedestrian safety. In response to these requests, the City of Kitchener has reviewed the existing traffic conditions on Dixon Street and initiated a formal traffic calming review. It was decided to incorporate Carwood Avenue into the review process, because Carwood Avenue is essentially a continuation of Dixon Street and the problems exhibited on Dixon Street were also evident on Carwood Avenue as well. Since both streets were on the Traffic Calming Priority List, is was determined that it would be more efficient and cost-effective to conduct the reviews of both Dixon Street and Carwood Avenue in one traffic calming review, instead of dealing with two separate reviews. Undertaking a formal traffic calming review for a project of this scale and nature is considered good municipal planning. It allows the City and stakeholders to understand all of the impacts, benefits and opportunities associated with any proposed traffic calming measures which may be considered to address traffic issues on Dixon Street and Carwood Avenue. REPORT The sections of Dixon Street and Carwood Avenue that are currently under review are both designated as minor collector roadways. These two streets form a continuous road link through the Rockway subdivision, connecting Courtland Avenue East to King Street East. The north section of Dixon Street from Eckert Street to King Street is designated as a major collector roadway, and was therefore not included in the traffic calming review. Generally, the function of Dixon Street and Carwood Avenue is to serve the abutting properties only, although it is intended to serve as an access road to other adjoining streets in the neighbourhood. Minor collector roadways are not intended to carry any significant volumes of through traffic. Land use along Dixon Street and Carwood Avenue is generally limited to single family homes and low-rise apartment blocks. However, there are significant traffic generators within the neighbourhood, including the Y.M.C.A., Rockway Mennonite Collegiate and Rockway Golf Course, which all contribute to the traffic volumes on Dixon Street and Carwood Avenue. The posted speed limit on Dixon Street and Carwood Avenue is 50 km/h, as outlined within the City of Kitchener Uniform Traffic Control By-law #2007-138. A questionnaire was mailed to residents in July 2008 in order to determine if there was sufficient neighbourhood support to commence the traffic calming review. There were 125 questionnaires 5-2 mailed out. Out of the 48 responses received, 45 (or 94%) were in favour of initiating the traffic calming review, while 3 (or 6%) were against initiating a traffic calming review. On November 5, 2008 our study team held its first public meeting to discuss traffic issues and concerns on Dixon Street and Garwood Avenue and possible approaches to developing solutions. Traffic speeds, traffic volumes, cut-through truck traffic, traffic noise, road geometry, aggressive driving and pedestrian safety were all identified by residents as their primary concerns. The existing traffic conditions as discussed in the first meeting are as follows: Automated Volume & Speed Studies Three traffic studies were conducted on Dixon Street and Garwood Avenue during May and September 2008. The following speed and traffic volume data was recorded during the three traffic studies: Location AADT 85th Percentile Speed Garwood Avenue between 4011 Northbound: 58.8 kmlh Courtland Avenue & Cayley Court vehlday Southbound: 58.7 kmlh Dixon Street between Carlin 3337 Northbound: 56.0 kmlh Avenue & Garwood Avenue vehlday Southbound: 57.4 kmlh Dixon Street between Carlin 3654 Northbound: 55.7 kmlh Avenue & Plymouth Road vehlday Southbound: 55.0 kmlh Traffic volumes are within the expected range for a minor collector roadway. The 85t" percentile speed, which is defined as the speed that 85% of vehicles are travelling at or below, is typical of what would normally be expected for a roadway of this design. All-Way Stop Controls Transportation Planning has received requests for an all-way stop control to be installed at the intersection of Dixon Street and Garwood Avenue. The City of Kitchener utilizes a warrant process to determine if an all-way stop control can be justified at a particular location. The warrant process used by the City of Kitchener is based on traffic engineering practices and guidelines that are in use in other municipalities and by the Ontario Ministry of Transportation. In order to fulfil the requirements of the warrant, a significant amount of traffic must approach the intersection on the side street. In December 2008, staff conducted a turning movement count at the intersection of Dixon Street and Garwood Avenue. The study concluded that an average of 276 vehicles per hour arrived at the intersection during the eight hour study and that 40% of this traffic was arriving on the side street. The City of Kitchener All-way Stop Control Warrant stipulates that the average intersection arrival rate must exceed 250 vehicles per hour, and that at least 35% of this traffic arrives on the side street. Therefore, the traffic conditions at the intersection of Dixon Street 5-3 and Carwood Avenue are such that the minimum requirements of the all-way stop control warrant are fulfilled. Accordingly, Transportation Planning is recommending the installation of an all-way stop control at the intersection of Dixon Street and Carwood Avenue. Collision Analysis A vehicle collision analysis was conducted for Dixon Street and Carwood Avenue between Courtland Avenue East and Eckert Street. There were 18 reported collisions on Dixon Street and Carwood Avenue over the three year analysis period from September 2005 to September 2008. Collision types included rear-end, sideswipe, loss of control and collisions involving parked vehicles. This collision history does not show a clear, identifiable collision trend, although it was noted that the majority of the collisions occurred at curves and intersections. Community Response The community response following the first public meeting indicated a slight preference for a moderate traffic calming approach. Out of 31 responses received from area residents, 46% favoured a moderate traffic calming approach to address speeding and other traffic problems on Dixon Street and Carwood Avenue. Based on the analysis of existing traffic, public input and the City of Kitchener's Traffic Calming Policy, five potential alternatives, comprised of a number of measures of varying degree, were considered, including "do nothing" (the "do nothing" alternative is required as part of any formal traffic calming review). These alternatives were then evaluated by the project team based on a number of social, natural and economic criteria to develop a preferred option. The following is a list of the five alternative designs that were considered: • Option #1 -Six (6) speed humps, one (1) raised crosswalk and one (1) raised median - Raised crosswalks are vertical deflections in the roadway, which along with a narrowed roadway, force vehicles to slow down when negotiating the crosswalk. Raised medians force drivers to stay in their appropriate lanes, thereby eliminating centreline crossovers. • Option #2 (Preferred Option) -Six (6) speed humps, one (1) raised crosswalk, one (1) intersection narrowing and one (1) raised median -Although similar to Option #1, this alternative also features an intersection narrowing at Dixon Street and Plymouth Road. • Option #3 -Three (3) intersection narrowings and one (1) raised crosswalk - Intersection narrowings are horizontal deflections which narrow the width of the roadway and reduce a driver's comfort level, thereby reducing vehicle speeds. Option #4 -Partial road closure -Closing the northbound lane of Carwood Avenue at Dixon Street prohibits through traffic from using the street in the northbound direction. Option #5- Do nothing. 5-4 A second public meeting was held on January 15, 2009 to present the five alternative design options, the advantages and disadvantages of each design option, and to present the preferred design option (Option #2) as determined by the traffic calming review's steering committee. Attendees were asked to provide any comments before a recommended plan was developed. The preferred design option was endorsed by most of the meeting attendees, so Option #2 was selected as the recommended traffic calming plan. On February 9, 2009, Transportation Planning mailed a survey to all residents/property owners that abut or are adjacent to the affected sections of Dixon Street and Garwood Avenue. This survey asked all residents and property owners to provide feedback on the recommended traffic calming plan. The intent of the survey was to determine if there was sufficient support for the implementation of the recommended traffic calming measures. As per the City of Kitchener Traffic Calming policy, a minimum of 50% of directly affected residentslproperty owners must respond to the survey and 60% of the respondents must support the recommended plan, in order for there to be any further consideration of the plan. There were a total of 179 properties surveyed within the boundaries of the study area. The results of the survey are as follows: In favour of the recommended plan: 69 (90%) Opposed to the recommended plan: 7 (9%) Undecided: 1 (1%) Total 78 responded out of 179, or (44%) Therefore, the Dixon Street and Garwood Avenue traffic calming study has not met the required minimum community support as outlined in the City of Kitchener Traffic Calming policy. However, a significant number of the residents in this area live in higher density rental properties, where turnover is typically much greater and residents tend to take less "ownership" of the municipal issues in their neighbourhood. Many of the surveys sent to the apartment buildings were returned to City Hall by the post office as being undeliverable, due to the large number of vacant apartments. There are 93 single detached and semi-detached homes within the survey area. These properties are far more likely to be owner-occupied than renter-occupied. An analysis of the response rates from these single and semi-detached homes indicate a strong support for the recommended traffic calming plan, with 52 responses in favour and 6 opposed to the plan. One respondent was undecided. Therefore, out of the 93 single detached and semi-detached homes within the survey area, a response rate of 63% was achieved, through which 90% were in favour of the traffic calming plan and only 10% were opposed. The measures recommended for Dixon Street and Garwood Avenue can be considered good traffic engineering in that they address the concerns regarding speeding traffic and pedestrian safety. Therefore, while the minimum public input requirement was not met through this process, staff recommends that the proposed traffic calming measures be implemented on Dixon Street and Garwood Avenue. 5-5 Agency Response As part of the traffic calming study, the recommended traffic calming plan was distributed to all affected agencies for their comments/concerns. While we have received general comments about the traffic calming program in the past from the Region of Waterloo, Waterloo Regional Police Services, Grand River Transit and City of Kitchener Operations Services, the only response received that was specific to the Dixon Street and Garwood Avenue traffic calming review was from the City of Kitchener Fire Department. The following is a synopsis of the general agency comments pertaining to traffic calming: Waterloo Regional Police Services - No concerns. Grand River Transit -Concerns with impact of vertical deflection measures on adherence to bus schedules and potential for discomfort to the driver and passengers. City of Kitchener Operations -Concerns with icing at the base of vertical deflections which results in extra salting at the base of any vertical deflection. The curb extensions are difficult to plough around and will slow ploughing in the area. This extra attention required will add to the cost and time taken to conduct winter maintenance. • Emergency Medical Services - No concerns. City of Kitchener Fire Department -Indicated the specific concerns discussed below. In a letter dated April 17, 2009, the Kitchener Fire Department cautioned that the installation of any vertical deflections will increase emergency response times. The Fire Department estimates that the measures currently being proposed for Dixon Street and Garwood Avenue could potentially add 70 seconds to the current 4.5-minute emergency response time to this neighbourhood. The Fire Department utilizes Dixon Street and Garwood Avenue as a secondary response route between King Street and Courtland Avenue, in the event that Ottawa Street is unavailable. Dixon Street and Garwood Avenue serve as the main access routes to seven (7) other neighbourhood streets for the Fire Department. According to statistics compiled by the Fire Department, there were 82 responses to this neighbourhood during 2008 for various emergencies. The Fire Department has consistently expressed their concerns about the use of vertical deflection measures in neighbourhood traffic calming plans. Transportation Planning staff have met with the Fire Chief in the past to discuss the issues related to the use of vertical deflection measures. While Transportation Planning acknowledges the Fire Department's concerns about the use of vertical deflection measures, we must emphasize that the use of vertical deflection measures have proven to be extremely effective in moderating vehicle speeds on neighbourhood streets on allay-to-day basis. It must be noted that the spacing between vertical measures is absolutely critical in maintaining a consistent moderation of vehicle speeds throughout the entire length of the street and that a spacing of 125-150 metres between vertical measures is strongly recommended. Reducing the number of vertical deflections will change the spacing between the measures, which may negate the effectiveness of the remaining traffic calming devices. In turn, this will reduce the positive impact that the traffic calming installation will have on the neighbourhood. Please note 5-6 that all measures being proposed for traffic calming on Dixon Street and Garwood Avenue will meet the requirements of the Ontario Building Code (OBC), Ontario Provincial Standards (OPS) and the City's Urban Design Guideline Manual. During the latter stages of the plan review period, it was decided that the recommended traffic calming plan should be modified to include a raised centre median on Garwood Avenue instead of the flush "singing median" (rumble strip) that was originally proposed. Transportation Planning initially opposed the concept of a raised median, because we felt that fire trucks might not be able to complete the turn if a raised median was installed at that location. On May 1, 2009, Transportation Planning staff met with representatives of the Kitchener Fire Department on-site, in order to investigate the possibility of replacing the flush singing median with a raised median. After testing the proposed median location with the turning radii of the fire truck fleet, it was determined that the fire trucks could still complete the turn with the raised median located as proposed. Should Council endorse the Recommended Plan, the proposed traffic calming measures shall be installed according to the following schedule: • Curb extensions at Carlin Avenue and Plymouth Road in 2009 (During reconstruction) • All-way stop control at Dixon Street and Garwood Avenue (Spring 2010) • Raised median on Garwood Avenue (Spring 2010) • Asphalt speed humps on Garwood Avenue (Spring 2010) • Asphalt speed humps on Dixon Street and asphalt portion of raised crosswalk (2011) Transportation Planning does not want to install the speed humps on Garwood Avenue until after the reconstruction of Dixon Street is complete, due to the likelihood of the measures being damaged by construction trucks that will be utilizing the roadway during the summer and fall of 2009. While the base course asphalt will be installed on Dixon Street by the end of 2009, it will not be possible to install the speed humps or the asphalt portion of the raised crosswalk on Dixon Street until 2011, when the top course asphalt is scheduled to be completed on Dixon Street. FINANCIAL IMPLICATIONS: The cost to install the traffic calming measures is approximately $29,000. This figure already takes into account that the curbwork required for the raised crosswalk and the intersection narrowing shall be incorporated into the reconstruction of Dixon Street in 2009. The costs of this project shall betaken from the existing traffic calming budget. COMMUNICATIONS: 5-7 Public involvement in this project has been extensive. Through the review process, there have been two public information centres, comment forms, surveys as well as direct mailings and electronic correspondence. All residents within the study area who front or side-lot onto Dixon Street or Garwood Avenue have been notified in writing of the DTS meeting date. CONCLUSION: The recommended plan, which prescribes the installation of six (6) speed humps, one (1) raised crosswalk, one (1) intersection narrowing, an all-way stop control, and a raised median provides the most desirable technical solution to the problems investigated through the traffic calming study. While resident input did not meet the minimum policy requirement, those that did respond are in majority support of our proposal. Transportation Planning feels that the recommendations will improve traffic conditions on Dixon Street and Garwood Avenue by moderating vehicle speeds, in addition to improving pedestrian safety along these two streets. CB Attach. ACKNOWLEDGED BY: Jeff Willmer, Interim General Manager Development and Technical Services Department 5-8 TI~FFI LII~I FLIP FIB ~I~I Tf~EET I~~ EE ~EIE~J~E~ FL~~1 g .; ~~ _~- a .~_ -- _ ~~ ~ ~~ ~~~ :°;~ ~ ~ F ~' N r ~ ~ ~ ~ .a. '-YI 5-9