Report to/Rapport au :

Transportation Committee

Comité de transports

and Council/et au Conseil

16 August 2005/le 16 août 2005

Submitted by/Soumis par : R.G. Hewitt,

Acting Deputy City Manager/Directeur municipal adjoint intérimaire,

Public Works and Services/Services et Travaux publics 

Contact Person/Personne ressource : Michael J. Flainek, P.Eng., Director/Directeur

Traffic and Parking Operations/Circulation et stationnement

(613) 580-2424 x26882, Michael.Flainek@ottawa.ca

Ref N°: ACS2005-PWS-TRF-0004

SUBJECT:	KIRKWOOD AVENUE TRAFFIC CALMING MEASURES -TECHNICAL EVALUATION AND MUNICIPAL CLASS ENVIRONMENTAL ASSESSMENT STUDY
OBJET :	MESURES DE MODÉRATION DE LA CIRCULATION SUR L’AVENUE KIRKWOOD – ÉVALUATION TECHNIQUE ET ÉVALUATION ENVIRONNEMENTALE MUNICIPALE DE PORTÉE GÉNÉRALE

REPORT RECOMMENDATION

That the Transportation Committee recommends Council receive the findings of the Kirkwood Avenue Traffic Calming - Technical Evaluation and the Municipal Class Environmental Assessment Study which support the retention of existing traffic calming measures on Kirkwood Avenue between Clare Street and Byron Avenue.

RECOMMENDATION DU RAPPORT

Que le Comité des transports recommande au Conseil de prendre connaissance des conclusions de l’évaluation technique des mesures de modération de la circulation sur l’avenue Kirkwood et de l’étude d’évaluation environnementale de portée générale qui appuient le maintien des mesures de modération de la circulation en place actuellement sur l’avenue Kirkwood entre la rue Clare et l’avenue Byron.

EXECUTIVE SUMMARY

Assumptions and Analysis:

In 1996, the Island Park, Kirkwood Avenue, and Churchill Area Transportation Assessment and Traffic Calming Plan (the IKC Plan) recommended a number of measures to address the impacts of traffic on the surrounding neighbourhoods.

In 1999, a number of physical roadway modifications and traffic calming measures from the IKC Plan were constructed on Kirkwood Avenue, between Byron Avenue and Clare Street, with the intent of reducing the negative effects of automobile traffic on the adjacent community.

In 2001, the former Transportation and Transit Committee and City Council directed staff to conduct a technical study to evaluate the performance of the traffic management measures along Kirkwood Avenue both in terms of the impact on Kirkwood Avenue, and on the surrounding community. The motion indicated that the Ward Councillor had received a number of complaints from local residents regarding the impacts of the existing traffic calming measures.

City staff completed a technical evaluation of the impact of the traffic calming measures on the study area streets in the Spring of 2003. This technical evaluation showed that the traffic calming measures have reduced the negative impacts of traffic on Kirkwood Avenue. Collision rates have been reduced and traffic speeds have generally decreased along Kirkwood Avenue. On other parallel and intersecting streets in the adjacent community, traffic volumes and speeds are unchanged or slightly reduced, with two exceptions: moderate increases in speed were noted on Tweedsmuir Avenue, as were increases in both speed and volumes on Hilson Avenue. Noise levels and vibration levels are unchanged or slightly improved.

Public Open Houses were held in the community in 2003 to present the findings of the technical evaluation, and to allow members of the public to identify specific concerns with respect to the operation of the existing measures. The public was encouraged to note any previously unreported impacts as well as any potential modifications that could improve operations. Most of the comments received indicated that the traffic calming measures have been successful in improving the safety of Kirkwood Avenue for travelers by all modes. Access to local properties was said to be easier, pedestrian crossing of Kirkwood Avenue to be safer (particularly for children walking to school), and driver behaviour to be improved. The negative impacts of traffic on residents living along Kirkwood Avenue were also reduced.

The most frequently repeated negative comment was that the traffic calming measures on Kirkwood Avenue have created an inequity between the role of Kirkwood Avenue and Churchill Avenue in the Transportation Network. Churchill Avenue, between Carling Avenue and Byron Avenue, is also designated as a major collector road and residents of Churchill Avenue requested that similar traffic calming measures be constructed on their street. This section of Churchill Avenue was not considered in the IKC Plan, but will be considered in this year’s Area Traffic Management Study for the Westboro / Highland Park / McKellar Park areas.

In order to comply with Provincial legislation, the removal of any existing traffic calming measures requires that an environmental assessment process be followed. The first step of this process is to demonstrate the need / opportunity to remove the measures. Given the results of the technical evaluation and the subsequent discussions with the public, this could not be demonstrated, and therefore, there was no basis upon which to remove the existing measures.

Based on the technical evaluation and following two Public Open Houses and a staff review of technical issues, it is recommended that the measures on Kirkwood Avenue be retained.

In 2004, the technical issues that were brought forward relating to the Kirkwood Avenue / Clare Street intersection, the Kirkwood Avenue / Byron Avenue intersection and the section of Kirkwood Avenue between Geoffrey Street and Iona Street were reviewed. Intended staff actions resulting from this review are detailed in the staff report.

The recommendation in this report was presented to the Ward Councillor for comment in late 2004.

Financial Implications:

Of the $50,000 provided for the evaluation of the existing traffic calming measures in place along Kirkwood Avenue under Internal Order #902585 – Kirkwood Avenue – Traffic Calming, $45,000 has been spent and committed.

There are no further identified future operating or capital financial impacts resulting from the staff recommendation in this report.

Public Consultation/Input:

The following consultation activities were completed through the course of this project:

1. A Notice of Project Initiation (Class EA) was posted in the two local community newspapers;
2. A Steering Committee met twice during the course of the Study; and,
3. Two Public Open Houses were held in the community (8 April 2003 and 7 May 2003).

RÉSUMÉ

Hypothèses et analyse :

En 1996, l'évaluation et le plan de modération de la circulation pour le secteur Island Park, Kirkwood et Churchill (plan IKC) recommandaient diverses mesures afin de réduire les répercussions de la circulation sur les quartiers avoisinants.

En 1999, certaines des modifications du réseau routier et des mesures de modération de la circulation proposées dans le plan IKC ont été réalisées sur l’avenue Kirkwood entre l’avenue Byron et la rue Clare, dans le but de diminuer les effets négatifs de la circulation automobile sur la communauté adjacente.

En 2001, le Comité des transports de la Ville et le Conseil municipal ont chargé le personnel de mener une étude technique pour évaluer l’efficacité des mesures de gestion de la circulation mises en place sur l’avenue Kirkwood, autant en ce qui concerne l’incidence qu’elles ont eue sur l’avenue elle‑même que sur la communauté avoisinante. La motion indiquait que le conseiller municipal du quartier visé avait reçu un certain nombre de plaintes de résidents au sujet des résultats des mesures de modération de la circulation existantes.

C’est au printemps 2003 que la Ville a effectué une évaluation technique de l’incidence des mesures de modération de la circulation sur les rues visées par l’étude. Cette évaluation a révélé que les mesures prises ont diminué les effets négatifs de la circulation sur l’avenue Kirkwood. Le nombre de collisions s’en est trouvé réduit et la vitesse moyenne des véhicules a également baissé. Quant aux autres rues parallèles ou perpendiculaires de la communauté adjacente, le débit de la circulation et la vitesse sont demeurés les mêmes ou ont légèrement diminué, à l’exception de deux endroits : des augmentations modérées de la vitesse ont été observées sur l’avenue Tweedsmuir et une hausse du débit et de la vitesse a été constatée sur l’avenue Hilson. Les niveaux de bruit et de vibrations sont demeurés inchangés ou se sont légèrement améliorés.

Des réunions portes ouvertes ont eu lieu dans le quartier en 2003 afin de présenter les conclusions de l’évaluation technique et de permettre aux membres du public de faire part de préoccupations particulières quant à l’application des mesures existantes. Le public a été invité à noter toute répercussion non mentionnée précédemment et d’éventuelles modifications pouvant améliorer la situation. La plupart des commentaires reçus ont indiqué que les mesures de modération de la circulation ont permis d’améliorer la sécurité, tous moyens de transport confondus, sur l’avenue Kirkwood. Il s’est avéré que l’accès aux propriétés a été facilité, que la traversée de l’avenue Kirkwood par les piétons est devenue plus sûre (en particulier pour les enfants se rendant à l’école) et que le comportement des conducteurs s’est amélioré. Les répercussions négatives de la circulation sur les résidents habitant sur l’avenue Kirkwood se sont également atténuées.

Le commentaire négatif le plus récurrent était que les mesures de modération de la circulation sur l’avenue Kirkwood avaient entraîné une inégalité dans le rôle que les avenues Kirkwood et Churchill jouaient dans le réseau de transport. L’avenue Churchill, entre les avenues Carling et Byron, est en outre désignée comme une voie collectrice importante et les résidents de l’avenue Churchill ont demandé que des mesures de modération de la circulation semblables soient mises en place dans leur rue. Cette partie de l’avenue n’a pas été prise en compte dans le plan IKC, mais elle le sera dans l’étude de gestion de la circulation réalisée cette année dans les secteurs Westboro / Highland Park / McKellar Park.

Pour être conforme aux lois provinciales, la suppression de toute mesure de modération de la circulation requiert la tenue d’un processus d’évaluation environnementale (EE. La première étape consiste à démontrer la nécessité de supprimer ces mesures ou à montrer qu’il s’agit d’un moment opportun pour le faire. Les résultats de l’évaluation technique et les discussions publiques qui ont suivi indiquent clairement que cette nécessité ne peut pas être démontrée et qu’il n’y avait par conséquent aucune raison de revenir à la situation initiale.

Sur la base de l’évaluation technique ainsi que des résultats de deux séances portes ouvertes et d’un examen des questions techniques par le personnel, il est recommandé de conserver les mesures déjà en place sur l’avenue Kirkwood.

En 2004, les problèmes techniques soulevés concernant les jonctions de l’avenue Kirkwood et de la rue Clare, des avenues Kirkwood et Byron et la partie de l’avenue Kirkwood comprise entre les rues Geoffrey et Iona ont été examinés. Des recommandations fondées sur cet examen ont été formulées.

Les recommandations figurant dans le présent rapport ont été soumises à l’appréciation du conseiller du quartier visé à la fin de 2004.

Répercussions financières :

Une somme de 45 000 $, sur les 50 000 $ attribués à l’évaluation des mesures de modération de la circulation actuellement mises en place sur l’avenue Kirkwood en vertu de l’ordre interne n^o 902585 – avenue Kirkwood – modération de la circulation, a été dépensée et engagée.

Les recommandations du personnel contenues dans le présent rapport n’ont pas d’autre répercussion sur les budgets de fonctionnement ou d’immobilisation.

Consultation publique / commentaires :

Les activités de consultation suivantes ont été réalisées au cours de ce projet :

1. Un avis de lancement de projet (ÉE de portée générale) a été publié dans les deux journaux communautaires locaux;

2. Un comité directeur s’est réuni deux fois au cours de l’étude;

3. Des réunions portes ouvertes ont eu lieu dans le quartier (le 8 avril et le 7 mai 2003).

BACKGROUND

The former Regional Municipality of Ottawa-Carleton (RMOC), the former City of Ottawa, and the National Capital Commission undertook the Island Park, Kirkwood Avenue, and Churchill Area Transportation Assessment and Traffic Calming Plan (the IKC Plan) between 1994 and 1996 to identify a series of physical measures to address the impact of traffic on the neighbourhoods around these three major road corridors. The IKC Plan recommendations included physical roadway modifications and traffic calming measures on both Kirkwood Avenue (between Carling Avenue and Richmond Road) and Churchill Avenue (between Byron Avenue and Scott Street). These are major roads that were under the jurisdiction of the RMOC. As there was very limited experience with the effects of traffic calming measures on arterial roads, RMOC Council approved the installation of a series of measures on Kirkwood Avenue between Byron Avenue and Clare Street as a pilot project in 1998. The Kirkwood Avenue measures, which include a raised intersection, a flat-top speed hump, and a series of curb extensions (which in some cases created a lateral deflection in traffic or chicane effect), were constructed between July and November of 1999 (see Document 1 for a Key Map showing the Study area, and Document 2 for an inventory of the measures installed on Kirkwood Avenue under the Pilot Project). Of note, at the time of construction some minor changes were made to the Kirkwood Avenue Plan from what was initially recommended in the IKC report. This resulting set of measures fulfills the intent of the IKC Plan with respect to Kirkwood Avenue between Byron Avenue and Clare Street.

The original direction of Council was that the performance of the Kirkwood Avenue Traffic Calming Pilot Project was to be monitored for a few years and then evaluated by staff, in conjunction with the original Study’s Steering Committee. Staff and the Steering Committee were to judge the success of the measures and make recommendations to Council regarding whether or not the measures should be maintained.

Many Municipal projects, such as road construction, require that the City comply with the Municipal Engineers Association Class Environmental Assessment (Class EA) process. This process was updated in 2000, and this had two significant impacts on the Kirkwood Avenue Traffic Calming Pilot Project:

• Installation and/or removal of traffic calming measures was specifically identified as an undertaking subject to the Class EA process (Project Type 41, Appendix A, June 2000 Class EA process); and,
• The Class EA process does not recognize pilot projects as being different from permanent installations.

The combined implication of the Class EA update on the Kirkwood Avenue Pilot Project was that an Environmental Assessment Study would have to be completed to justify the removal of some or all of the traffic calming measures on Kirkwood Avenue.

On 27 June 2001, Council approved a motion, brought forward by the Ward Councillor, asking that staff report back to Transportation Committee on the results of a monitoring and evaluation program with respect to the safety, operations and effectiveness of the curb extensions, raised intersections, and other traffic calming measures along Kirkwood Avenue (see Document 3). The motion indicated that the Ward Councillor had received a number of complaints from local residents regarding the impacts of the existing traffic calming measures, including:

· Response times of emergency vehicles had increased;

· Traffic had diverted onto local residential streets and Churchill Avenue traffic volumes had unfairly increased;

· The measures had resulted in several collisions; and,

· Drivers had reported difficulty in navigating the measures, particularly after dark.

At its 8 January 2003 Budget meeting, Council approved $175,000 in funding for Kirkwood Avenue, which included $50,000 for completing the newly required Municipal Class EA to determine whether the measures are unwarranted and/or unsuccessful, and an additional $125,000 for the potential removal of these measures. In the event the Class EA Study deemed the current measures to be unwarranted and/or unsuccessful, the motion indicated that further Council approval was required before proceeding with these removals (see Document 4). Subsequently, at a special Budget meeting of Council on 23 May 2003, $125,000 of the total $175,000 funding was withdrawn.

This report summarizes the findings of the Kirkwood Avenue Traffic Calming - Technical Evaluation, the findings of the Problem Identification Phase of the Kirkwood Avenue Traffic Calming Measures Class EA Study, and the intended staff actions for resolving the technical issues that were raised through this review process.

DISCUSSION

As directed by Transportation Committee and Council, a technical evaluation was carried out to evaluate the performance of the measures along Kirkwood Avenue both in terms of the impact on Kirkwood Avenue, and on the surrounding Community. Following this, the Class EA Study was initiated to allow the public to identify additional concerns or impacts, and to identify any potential modifications that could improve operations along Kirkwood Avenue.

The primary study area for assessing traffic operations performance was Kirkwood Avenue from Byron Avenue to Clare Street. The secondary study area for assessing potential impacts was bounded by Carling Avenue, Tweedsmuir Avenue, Richmond Road, and Hilson Avenue. Traffic volume data was also collected outside of the secondary study area for Churchill Avenue, Island Park Drive, and sections of Byron Avenue, Clare Street and Dovercourt Avenue.

Technical Evaluation

The City completed a technical evaluation of the impact of the traffic calming measures on the study area streets in the Spring of 2003. The former RMOC had collected an inventory of relevant data prior to the installation of the traffic calming measures on Kirkwood Avenue, which was supplemented by collecting the matching data following the construction of the devices. The data set included the following information for key locations on study area streets:

· 24 hour traffic volumes;

· 85^th percentile speeds;

· 3 year collision rates;

· noise levels;

· vibration levels;

· pedestrian and cyclist activity in the corridor; and,

· intersection levels of service.

The comparison of the “before” and “after” data indicated that the traffic calming measures have reduced the negative impacts of traffic on Kirkwood Avenue. Collision rates have been reduced and traffic speeds have generally decreased along Kirkwood Avenue. On other parallel and intersecting streets in the adjacent community, traffic volumes and speeds are unchanged or slightly reduced, with two exceptions: moderate increases in speed were noted on Tweedsmuir Avenue, as were both speed and volumes on Hilson Avenue. Noise levels and vibration levels are unchanged or slightly improved. The conclusions from the Technical Evaluation are summarized in Document 5, while the full Technical Evaluation report is provided as Document 6.

The City supplemented the collection of technical data with a survey of service providers who are active along Kirkwood Avenue (Emergency Medical Services, Fire Services, Police Services, Transit Services, and Surface Operations) to determine if the traffic calming measures have resulted in difficulties/ impacts on their ability to provide the necessary service. Some of the agencies identified impacts to services delivery, as a result of the measures on Kirkwood Avenue, but none indicated that they had experienced unacceptable impacts.

Environmental Assessment Process

In order to remove any existing traffic calming measures, current legislation requires that the City carry out an environmental assessment (EA) following the Class B process. (Document 7 summarizes the EA process as it pertains to traffic calming.) The first step of this process is to demonstrate a need or opportunity that would justify the removal of the existing traffic calming measures.

The first step in demonstrating the need / opportunity is to define an existing problem with the current situation. Two means were used to identify the problems associated with the implemented traffic calming measures on Kirkwood Avenue. These were:

· The results of the Technical Evaluation (as noted above), and,

· Discussions with the public in an attempt to identify additional impacts.

Discussions with the Public:

A Public Open House was held in the community on 8 April 2003, to present the findings of the technical evaluation, and to allow members of the public to identify specific concerns with respect to the operation of the existing measures. The public was encouraged to note any previously unreported impacts as well as any potential modifications that could improve operations. The Public Open House generated more than 75 comment sheets / e-mail messages / telephone reports (see Document 8). Overall, the vast majority of the comments received from the public indicated that the traffic calming measures have been successful in improving the safety of Kirkwood Avenue for travelers by all modes. Access to local properties was said to be easier, pedestrian crossing of Kirkwood Avenue to be safer (particularly for children walking to school), and driver behaviour to be improved. The negative impacts of traffic on residents living along Kirkwood Avenue were also reduced.

The most frequently repeated negative comment was that the traffic calming measures on Kirkwood Avenue have created an inequity between the role of Kirkwood Avenue and Churchill Avenue in the transportation network. Churchill Avenue, between Carling Avenue and Byron Avenue, is also designated as a major collector road and residents of Churchill Avenue requested that similar traffic calming measures be constructed on their street. This section of Churchill Avenue (south of Byron Avenue) was not considered in the IKC Plan, but will be considered in this year’s area traffic management study for the Westboro / Highland Park / McKellar Park areas.

The following study area problems were identified from the public comments received:

a) Kirkwood Avenue at Clare Street:

· Safety concerns for northbound traffic, particularly on the northeast corner;

· Traffic signals are required to assist pedestrian and vehicular access to Kirkwood Avenue; and,

· Grades on Kirkwood Avenue (uphill southbound to Clare Street) make it difficult to see approaching traffic from the south when turning from Clare Street.

b) Kirkwood Avenue at Byron Street:

· Conflicts between buses turning to/from Byron Street and vehicles northbound on Kirkwood Avenue; and,

· Congestion caused by removal of northbound and southbound turn lanes.

c) Traffic signage and pavement markings in the study area need to be reviewed. Some drivers reported that they find it difficult to understand the intended driving path or to spot curb extensions and the chicane located between Geoffrey Street and Iona Street.

A visual field audit was conducted on Thursday 24 April 2003 to observe traffic operations in the study area during the Off-Peak and PM peak commuter periods. It considered all potential issues related to all modes, and specifically looked to visually understand and confirm the issues generated by the public consultation.

Based on the Technical Evaluation and the Public Open House, a series of problem / opportunity statements were generated for the Kirkwood Avenue Traffic Calming Measures Class EA Study:

1. What are the best solutions and means to address the existing traffic operations concerns at the Kirkwood Avenue / Clare Street intersection for travellers using all modes?

2. What are the best solutions and means to address the existing traffic operations concerns at the Kirkwood Avenue / Byron Avenue intersection for travellers using all modes?

3. What are the best solutions and means to address the existing signage and pavement marking deficiencies associated with the curb extensions and chicane on Kirkwood Avenue between Geoffrey Street and Iona Street?

It is important to note that none of the above problem / opportunity statements support the removal of the traffic calming measures on Kirkwood Avenue. The removal of the measures therefore cannot be justified under the Class EA process. Also, as the problem / opportunity statements that have been generated result in a range of solutions that qualify as pre-approved projects under the Class EA process, the following of this process was no longer a requirement and was therefore ended at this point. It should be noted that the removal of the measures without EA approval would be in contravention of the Provincial Environmental Assessment Act.

A second Public Open House was held in the community on 7 May 2003 to present the findings, the problem / opportunity statements, and the recommendation to retain the Kirkwood Avenue traffic calming measures.

Resolution of Issues

Staff studied the three problem / opportunity statements to determine the appropriate steps that should be taken to resolve the issues.

Kirkwood Avenue / Clare Street: A sightline review of the Kirkwood Avenue / Clare Street intersection determined that, while sight lines at the intersection are adequate, they are compromised at the southeast and northwest corners when existing parking prohibitions are violated. Bylaw Enforcement staff have been notified of the issue of vehicles being parked in the prohibited areas and have been requested to provide further enforcement at this location. As the IKC Plan had recommended a concrete curb extension on the southeast corner of Kirkwood Avenue and Clare Street (currently implemented as a painted curb-extension), this measure will remain on the list of previously approved Area Traffic Management measures, and will be considered for future implementation in accordance with the process outlined in the Area Traffic Management Guidelines.

A signal warrant analysis conducted at the intersection of Kirkwood Avenue / Clare Street showed that a traffic control signal is 68% warranted and an intersection pedestrian signal is 28% warranted. As minimum warrants have not been achieved, neither of these measures is being recommended.

Kirkwood Avenue / Byron Avenue: Visual observations of the Kirkwood Avenue / Byron Avenue intersection confirm that there are no capacity constraints at the intersection. Reported collisions at this intersection have been reduced from an average of 6 per year before implementation to 2.6 per year following implementation. Currently, Bus Routes 16 and 151 turn at this intersection. Service changes that started in September 2004 redirect Route 151 such that it no longer turns at the Kirkwood Avenue / Byron Avenue intersection but rather travels straight through along Kirkwood Avenue. There were no reported collisions involving Bus Route 16 at the intersection. No changes are recommended at this intersection.

Kirkwood Avenue between Geoffrey Street and Iona Street: A review of the chicane between Geoffrey Street and Iona Street was carried out and it was determined that although the horizontal shift in the roadway centreline is developed over a shorter distance than would normally be used, the geometric layout is appropriate considering the desire for reduced operating speeds through the area. Of particular note, there were no reported collisions along this section of Kirkwood Avenue during the 3-year period following implementation. No changes are recommended at this location.

CONSULTATION

The following consultation activities were completed through the course of this Project:

1. A Notice of Project Initiation (Class EA) was posted in the two local community newspapers identified by the Councillor’s office (the News and Newswest), the Ottawa Citizen, and Le Droit. The Notice invited the public to contact the City with any comments on the project;
2. A Steering Committee was struck at the outset of the project consisting of local residents and representatives of area Community Associations. The Steering Committee was based on the Steering Committee from the original IKC Plan, and was supplemented by nominees from the Ward Councillor. The Steering Committee met twice, each time in advance of general Public Open House events;
3. Two Public Open Houses were held in the community (8 April 2003 and 7 May 2003). The Public Open Houses were advertised in the community newspapers (the News, and Newswest), the Ottawa Citizen, and Le Droit, and on the City website. The first Public Open House presented the results of the Technical Evaluation and solicited input on problems and potential impacts. The second Public Open House presented the results of the first open house, the problem / opportunity statements, and the recommendation to retain the traffic calming measures; and,
4. Service providers were contacted as a part of the Technical Evaluation.

A summary of the public comments received is provided in Document 8.

ENVIRONMENTAL IMPLICATIONS

No impacts are anticipated on the environment.

TRANSPORTATION MASTER PLAN

The recommendation to retain the devices given their demonstrated success is in keeping with the September 2003 Ottawa 20/20 – Transportation Master Plan directions, as stated in Section 9.6:

1. Develop and apply Area Traffic Management Guidelines to guide the consistent and equitable resolution of public concerns related to the undesirable impacts of vehicular travel.
2. Consider a wide range of area traffic management tools for application, including road network modifications, traffic control devices, traffic calming measures, streetscaping, enforcement, transportation demand management and public education.

FINANCIAL IMPLICATIONS

Of the $50,000 provided for the evaluation of the existing traffic calming measures in place along Kirkwood Avenue under Internal Order #902585 – Kirkwood Avenue – Traffic Calming, $45,000 has been spent and committed.

There are no further identified future operating or capital financial impacts resulting from the staff recommendation in this report.

SUPPORTING DOCUMENTATION

Document 1 – Key Plan

Document 2 – Traffic Calming Measures – Kirkwood Avenue - Byron Avenue to Clare Street

Document 3 – Motion No. 14/11 – 27 June 2001

Document 4 – Motion No. 46/23 – 08 January 2003

Document 5 – Conclusions of Kirkwood Avenue Traffic Calming Pilot Project - Technical Evaluation

Document 6 – Kirkwood Avenue Traffic Calming Pilot Project – Technical Evaluation (on file with the City Clerk)

Document 7 - Class EA Process for Traffic Calming Projects

Document 8 - Summary of Public Comments Received Through Class EA Process

DISPOSITION

No direct actions as a result of this report. The outstanding concrete curb extension on the southeast corner of Kirkwood Avenue and Clare Street, as identified in the IKC report, will be considered for future implementation in accordance with the implementation procedures as described within the Area Traffic Management Guidelines.

DOCUMENT 1

Key Plan

DOCUMENT 2

Traffic Calming Measures – Kirkwood Avenue - Byron Avenue to Clare Street

DOCUMENT 3

Motion No. 14/11 – 27 June 2001

Moved by Councillor Little

Seconded by Councillor Harder

WHEREAS in the Fall of 1999 the Regional Municipality of Ottawa-Carleton implemented a traffic calming pilot project on Kirkwood Avenue;

AND WHEREAS Kirkwood is designated as a collector street and is meant to allow traffic to flow from one arterial road to another (Carling Avenue to Richmond Road);

AND WHEREAS residents from many of the residential streets in the direct vicinity of Kirkwood have called their Councillor’s office to complain about the volume of cut- through traffic in order to avoid the traffic calming measures;

AND WHEREAS Kirkwood Avenue is the street used by the fire department and other emergency vehicles as their primary response route and the measures have resulted in the delay of response times;

AND WHEREAS there have been several collisions as a result of the measures including, but not limited to, the collision of two ambulances;

AND WHEREAS many seniors in the area and others find it difficult to navigate the street, especially after dark;

AND WHEREAS Kirkwood Avenue will be one of the major access points for a new Loblaws store;

AND WHEREAS an overwhelming majority of residents have called, written or emailed their opposition to these measures;

Therefore be it resolved that staff prepare a report on the results of the monitoring program and evaluation to date, with respect to the safety, operations and effectiveness of the bulb-outs, raised intersections, and other traffic calming measures on Kirkwood Avenue, and report back to Transportation Committee.

CARRIED

DOCUMENT 4

MOTION NO. 46/23 - 08 JANUARY 2003

Moved by Councillor S. Little

Seconded by Councillor W. Stewart

WHEREAS city staff were directed in June 2001 to prepare a report that evaluated the technical impacts of the traffic calming measures installed on Kirkwood Avenue as a pilot project by the former RMOC;

AND WHEREAS the Council-supported Steering Committee is being expanded and will meet in early 2003 to review and assess the traffic calming impacts on Kirkwood Avenue;

AND WHEREAS the traffic calming measures continue to generate complaints from motorists, cyclists and from residents living in the vicinity of Kirkwood Avenue;

AND WHEREAS Kirkwood Avenue is designated as an arterial roadway that will serve the Loblaws store located on the west side of the street;

AND WHEREAS Kirkwood Avenue is also designated as a primary response route for emergency vehicles and the current vertical measures used on the street negatively impacts response times;

AND WHEREAS the technical report has now been completed and is to be presented to the Transportation Committee and Council in the coming months;

AND WHEREAS city staff estimate that reinstating Kirkwood Avenue to its former condition will cost approximately $175,000, that would include approximately $125,000 to cover both design (new drawings and utility circulations) and construction costs, and $50,000 for completing the newly required Environmental Assessment review;

THEREFORE BE IT RESOLVED THAT Council approve funding in the amount of $175,000 to be placed in a separate account in the event that the pilot is deemed to be unwarranted and/or unsuccessful after full public consultation and review and with the approval of Council in 2003 or at a later date.

CARRIED

DOCUMENT 5

Conclusions of Kirkwood Avenue Traffic Calming

Pilot PROJECT - TECHNICAL EVALUATION

Evaluation Criteria	Evaluation Results
Collisions	Collisions along Kirkwood Avenue have declined.
Traffic Volumes	Traffic volumes on both Kirkwood Avenue and adjacent streets are generally either the same or moderately lower. While moderate volume increases were noted along Hilson Avenue, these are not considered significant.
Traffic Speed	Traffic speeds have generally decreased on Kirkwood Avenue. While moderate increases in speeds were noted on Tweedsmuir Avenue and Hilson Avenue, overall results were mixed and the overall changes were not considered significant.
Noise	Reduction in average noise levels is negligible, but is accompanied by somewhat higher maximum noise levels.
Vibration	Moderate reduction in vibration levels.
Capacity / Level of Service	No traffic capacity issues were identified. The intersection of Kirkwood Avenue and Byron Avenue (the intersection within the Kirkwood Avenue Traffic Calming Pilot Project most directly affected by the Loblaws development) will continue to operate at a reasonable level of service (LOS “C”). The additional traffic associated with the proposed Loblaws development does not require re-installing either of the north or south left-turn lanes at the intersection.
Pedestrians and Cyclists	Pedestrian crossing distances have been reduced at several intersections. No operational difficulties for cyclists have been identified.
Impacts on Service Providers	While service delivery, in some cases, has been affected, no service providers have suggested these impacts have been unmanageable.

DOCUMENT 7

Class EA Process for Traffic Calming Projects

Installation or removal of traffic calming measures qualifies as either a Schedule B project or a Schedule C project under the Class EA process, depending on the capital cost of the construction (capital cost equal to or less than $1.5 million requires a Schedule B study; capital cost in excess of $1.5 million requires a Schedule C study). As the vast majority of traffic calming projects will have capital costs less than $1.5 million, Schedule B is normally the appropriate planning process for traffic calming projects.

The Schedule B planning process includes the following steps:

EA Phase 1

· Definition of the problem/ opportunity; and,

· Preliminary identification of planning process/ Project Schedule (i.e., Schedule A, B, or C).

EA Phase 2

· Documentation of the existing environment;

· Evaluation of the effects of alternative solutions;

· Selection of the preferred solution;

· Presentation of the preferred solution to the stakeholders and the public;

· Finalization of the recommended solution; and,

· Filing of the Notice of Project Completion.

It should also be noted that the Class EA process has a specific definition for traffic calming measures:

“Traffic calming measures are physical measures designed to control traffic speeds and encourage driving behaviour appropriate to the environment.”

DOCUMENT 8

SUMMARY OF PUBLIC COMMENTS RECEIVED THROUGH THE

CLASS EA PROCESS

TOPIC	PUBLIC COMMENTS	RESPONSE
SAFETY	General: A significant number of residents have reported that safety has been improved in the corridor through a combination of reduced pedestrian crossing distances; slower traffic speeds; reduced traffic volumes (including trucks); improved driver behaviour (less passing on right); safer waiting areas at bus stops; and better protection for vehicles accessing side streets/driveways and parking.	The collision records from the last three years indicate that safety on Kirkwood Avenue has improved for all users.
	Chicane: Some residents have reported that they perceive that the chicane has reduced safety by making the driving path for vehicles unpredictable, which has caused driver confusion and anxiety (especially during inclement weather). Some residents also perceive the chicane to be unsafe for cyclists. Recommended mitigation treatments ranged from removal of the chicane to improvements in signage and demarcation.	A review of the existing traffic signage and pavement markings in the vicinity of the chicane identified a number of opportunities to improve existing demarcation for drivers and cyclists. These changes should improve driver understanding and reduce anxiety in all weather conditions. With regard to cycling, the people who expressed concerns related to cycling through the chicane were balanced by a number of cyclists who indicated that they had no difficulty in travelling through the chicane. The design of the chicane also allows cyclists who are uncomfortable with the chicane to circumvent the lateral roadway shift by cycling on the right-hand portion of the roadway between the curb and the chicane (1.5m clearance). For context, it is noted that Kirkwood Avenue is not a designated cycling route on the City’s Cycling Network.
TOPIC	PUBLIC COMMENTS	RESPONSE
TRAFFIC AND TRUCK VOLUMES	Some residents expressed concern that the traffic calming measures on Kirkwood Avenue have displaced traffic volumes (particularly truck traffic) onto parallel streets (i.e. Churchill Avenue, Tweedsmuir Avenue) and other neighbourhood streets.	A comparison of traffic and truck volumes from pre- and post-construction conditions showed that traffic volumes have not increased on parallel or neighbourhood streets.
KIRKWOOD AVENUE / BYRON AVENUE INTERSECTION	A number of local stakeholders indicated that there are traffic operations issues at the intersection of Kirkwood Avenue/ Byron Avenue that need to be addressed. Concerns reported included: · Conflicts between buses turning to / from Byron Avenue and vehicles northbound on Kirkwood Avenue; and, · There are unacceptable levels of congestion at the intersection, caused by removal of northbound and southbound turn lanes.	Alternative treatments should be investigated. Intersection analysis does not indicate capacity constraints, however, congestion at the intersection does increase the potential for vehicles to cut through the neighbourhood as a means of avoiding perceived delays at Kirkwood Avenue / Byron Avenue.
TOPIC	PUBLIC COMMENTS	RESPONSE
KIRKWOOD AVENUE / CLARE STREET INTERSECTION	A number of local stakeholders indicated that there are traffic operations issues at the intersection of Kirkwood Avenue / Clare Street that need to be addressed. Concerns reported included: · The visibility for vehicles turning onto Kirkwood Avenue from Clare Street needs to be improved; and, · The bulbout on the northeast corner of the intersection presents a barrier as drivers attempt to pass a left turning vehicle in the “right lane”.	Alternative treatments / solutions were investigated. It is recommended that the existing painted curb extensions (where parking is currently prohibited) be replaced by concrete curb extensions so that the parking prohibition and sightlines can be maintained. This can be done at the time of roadway reconstruction.
QUALITY OF LIFE ALONG ARTERIAL STREETS	A significant number of residents adjacent to Kirkwood Avenue reported a measurable improvement in their Quality of Life. Conversely, a number of residents adjacent to Churchill Avenue reported a reduction in their Quality of Life.	Residents adjacent to Kirkwood Avenue have experienced a measurable reduction in the negative Quality of Life impacts of traffic. While surveys show that traffic on Churchill Avenue has not increased, residents perceive a lack of equity between Churchill Avenue and Kirkwood Avenue and have expressed concerns about this issue.
AESTHETICS OF TRAFFIC CALMING DEVICES	A few residents / stakeholders commented that the aesthetics of the traffic calming devices should be improved by making them more permanent.	The original measures were installed as a test or pilot implementation. Aesthetics were a factor, but were not maximized due to the temporary nature of the measures. Improvements in the aesthetics of the existing devices should be prioritized considering the outstanding commitments for Area Traffic Management Capital Works.
TOPIC	PUBLIC COMMENTS	RESPONSE
EXTENSION OF TRAFFIC CALMING MEASURES	A number of people commented that the existing traffic calming measures should be extended to include Kirkwood Avenue (Clare Street to Carling Avenue); Churchill Avenue (Byron Avenue to Carling Avenue); and all parallel local residential streets.	The need to extend the traffic calming measures was beyond the scope of this study, unless it had a direct affect on the performance of the existing measures. Such effects have not been observed, reported by the community, or demonstrated by the Technical Review.
INSTALLATION OF ADDITIONAL TRAFFIC CONTROLS	A number of changes to existing local traffic control devices were requested by stakeholders, including increased warning signage and additional pavement markings for the existing measures and installation of new traffic control signals and / or stop signs at various locations to facilitate pedestrian crossing and vehicular turning movements from side streets. A few people also requested that the traffic calming measures be replaced with traffic controls (i.e. signs, signals etc).	Signage and pavement markings related to the traffic calming measures on Kirkwood Avenue should be investigated further. Requests for additional / new controls to facilitate pedestrian crossing have been referred to existing programs. Traffic signals or stop signs are not substitutes for traffic calming measures, and these requests were not considered further.
TOPIC	PUBLIC COMMENTS	RESPONSE
IMPACT OF LOBLAWS DEVELOPMENT	One of the most contentious issues related to traffic and the performance of the Kirkwood Avenue traffic calming measures was the impact of the new Loblaws store on the southwest corner of Kirkwood Avenue / Richmond Road. The majority of comments indicated that the new Loblaws store will increase traffic demands on Kirkwood Avenue; therefore, the traffic calming measures should be retained to mitigate the effects of the additional traffic. Others indicated that the measures on Kirkwood Avenue should be removed in light of the new Loblaws, so that the capacity of Kirkwood Avenue could be increased, thereby reducing the potential to displace traffic onto parallel streets (including Churchill Avenue).	The Technical Evaluation did not indicate capacity constraints on Kirkwood Avenue, even accounting for the forecasted traffic from the new Loblaws store. Traffic Calming measures are not intended to reduce or displace traffic volumes; they are intended to alter driver behaviour and reduce traffic speeds. The existing measures are performing as planned, as is demonstrated by the fact that traffic volumes have not increased on parallel or neighbourhood streets. Recent observations confirm that there are no capacity constraints at the Byron Avenue / Kirkwood Avenue intersection nor on the sections of Kirkwood Avenue north and south of Byron Avenue.