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City of Oshawa NeigHbourhood ~~- ~ Traffic Managemellt Guide
March 2002
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Oshawa
·r he Clly In Motion
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Neighbourhood Traffic Management Guide City of Oshawa Final Report
March 2002
The City ofOshawa
Neighbourhood Traffic Management Guide - Final Report
Page i
TABLE OF CONTENTS
1
Introduction........................................................................................................................................... 1
2
Tenninology .......................................................................................................................................... 2
3
Ptupose and Objectives ......................................................................................................................... 4
4
Guiding Principles ................................................................................................................................ 4
5
The Environmental Assessment Process ............................................................................................... 5
5.1 Process Implication ........................................................................................................................... 6
5.2 Community Involvement .................................................................................................................. 7
5.3 Role of Other Depa1tments and Agencies......................................................................................... 7
6
Traffic Management Measures ............................................................................................................. 8
6.1 General .............................................................................................................................................. 8
6.2 Stop Signs ....................................................................................................................................... 11
6.3 Proposed All-Way Stop Guidelines ................................................................................................ 12
6.4 Speed Lililit Signs ........................................................................................................................... 13
7
Oshawa Study Process ........................................................................................................................ 13
7 .1 Stage 1: Identify the Problem ......................................................................................................... 14
7.1.1 Preliminruy Traffic Assessment .............................................................................................. 14
7.1.2 Confinnation of Community Support ..................................................................................... 15
7 .2 Stage 2: Develop a Plan ................................................................................................................. 16
7.3 Stage 3: Implement the Plan .......................................................................................................... 16
8
Challenges and Oppo1tunities ............................................................................................................. 17
List of Figures
1 2 3 4 5 6 7 8
Neighbourhood Traffic Management Study Process Raised Centre Median Intersection Bump-Out Intersection Realignment Raised Intersection Road Closure Speed Hump On-Street Parking List of Tables
1
2 3 4 5
Roadway Designations Potential Traffic Control Measures: Operational, Safety and Environmental Impacts Potential Traffic Control Measures: Community, Social and Econolilic Impacts Potential Traffic Control Measures: Issues Versus Suitability Example Estimation of Traffic Infiltration Appendices
A
Glossruy
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Page 1
INTRODUCTION
Complaints relating to poor driving habits rank number one on the Durham Regional Police Se1vice's complaint list. Many Oshawa residents are concerned about the effect that vehicular traffic has on the quality of life and public safety within the residential area in which they live. With the rapid population growth within the Region of Durham, City of Oshawa sta ff have expe1ienced an increase in the number of complaints regarding speeding on residential streets and conesponding requests for control measures, part icularly stop signs, to address speeding and perceptions of reduced safety. Although it has been proven that stop signs ar·e an ineffective speed reduction measure1, stop signs are often regarded as an inexpensive measure and, in the view of residents, provide an increased level of safety in the community. The purpose of this repo1t is to provide the City of Oshawa with a guideline to assist the staff and public to deal with complaints regar·ding speeding, traffic infiltration and other community traffic concerns.
Traffic calming devices are intended to primar·ily address one fundamental concern - speeding. Traffic management is the te1m used to char·acte1ize actions taken to reduce unnecessa1y traffic on a road, especially local residential streets. Traffic calming can be considered a subset of a traffic management program. Although residents may feel that "too much" traffic uses the street on which they live, often the volume is well within the generally accepted thresholds; it is usually the speed at which vehicles travel that results in the perception of a dangerous environment. As the City grows, it is impo1tant to ensure that the major arterial roads in the community accommodate this increased growth and the local roads continue to se1ve "local" traffic. The City of Oshawa, in co-operation with the Durham Regional Police Se1vice, Region of Durham Works Depart ment and community volunteers, have been proactive in developing and initiating a number of programs that are intended to address traffic concerns within the City, including local community traffic issues: • • • • • •
Road Watch; Radar Message Boar·d; Road Safety Challenge; Community Safety Zones; Save A Life Campaign; and RSVP Enforcement.
Not all of the programs have an enforcement component, but the Durham Regional Police Se1vice considers that all have proven to be effective at improving road safety and raising public awar·eness in Oshawa.2 Other municipalities ar·e implementing similar strategies in an effo1t to make their respective communities safer. To address the increasing interest in traffic management strategies and to provide the public and municipal engineers with a better understanding of effective measures, the Transpo1tation Association of Canada (TAC), in association with the Institute of Transpo1t ation Engineers (ITE), published the "Canadian Guide to Neighbourhood Traffic Calming" in 1998. This guide outlines var'ious techniques that may be applicable for the City of Oshawa and further outlines the pros, cons, costs, etc. associated with each device/technique. Transportation professionals have learnt much since the publication of the Canadian Guide and these expe1iences have been taken into consideration in the development of this document.
2
Beaubien, Richard F., "Controlling Speeds on Residential Streets", ITE Journal, April 1989. Constable Shaun Amott, Durham Regional Police Service, Traffic Safety Co-ordinator for Oshawa
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The policies and procedures art iculated in this document will gradually evolve over time in accordance with ongoing local expe1iences and changes in local values and concerns. Updating the material contained in this document on a regular basis will represent an essential pa1t of an effective traffic management program. This is intended to be a living document given that experience with traffic management strategies results in many changes in philosophy and the approach to dealing with local traffic issues. Traffic management projects are now recognized by the Municipal Engineers Association and are designated as Schedule B projects in the June 2000 Municipal Class Environmental Assessment document for projects with a capital cost of less than $1. 5 Inillion. As a result, if implementing a traffic management plan results from a community traffic issue, the public consultation and implementation process mandated in the Municipal Class EA document must be followed. This document will outline a procedure that, if followed, will ensure that the City implements traffic management strategies consistent with Provincial legislation and cunently accepted practices.
2
TERMINOLOGY
As described above, there are two te1ms - traffic calining and traffic management - that are often used interchangeably in the traffic engineering profession. Traffic calining is considered site specific and usually deals with a physical change to the road environment to achieve a specific goal. Traffic management, although it may include certain traffic calining measures, is a strategy. Traffic management can be described as a systematic, strategic approach to controlling traffic movement. Traffic management schemes typically involve a large geographic ai·ea, and the imposition of area-wide measures. Neighbourhood traffic management is simply traffic management on a smaller, community wide scale. Traffic management can be described as follows: • • • • • •
A combination of policies and physical measures that improve conditions within a problem ai·ea; A systematic/strategic approach to dealing with community problems; The application of direct (tum restiictions) and indirect (land use zoning conti·ols) techniques; The application of ai·ea wide measures; The use of sti·ategies including u·affic signal tiining, one-way street designations, u·affic conti·ol signage, tum resti·ictions, etc.; and The use of aggressive ti·affic calming techniques.
In general te1ms, traffic management sti·ategies ai·e aimed at preventing non-local ti·affic from entering a community, rather than addressing the specific downsti·eam effects. A well-designed ti·affic management plan may prevent the need for future traffic calming measures, but maintains convenient access for local residents and emergency se1vices. Typical techniques may include:
• • • •
Tum Restiictions; Road Closures; Dive1t ers; and Alterial Improvements.
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Under the umbrella of traffic management, traffic calming is the implementation of physical or physiological changes, generally applied to local residential and minor collector type streets. These changes have the effect of reducing speeds and/or volumes to improve safety and "quality of life" within a neighbourhood. Traffic calming techniques or strategies can also be applied to aiterial standard roadways through the application of mainly physiological changes to the local environs that may not affect the function or capacity of the roadway, but may change the driver's perception of the local environment. However, traffic calming is often used as a "replacement" for regular police enforcement when adequate levels of enforcement cannot be achieved. Traffic calming devices affect a driver's perception of the street thereby influencing behaviour. Drivers will experience discomfo1t at inapprop1iate speeds and potential inconvenience to the point where they modify their driving habits/patterns. Traffic calming measures may include one or several of the following features: • • • • • • • •
Changes to horizontal and/or ve1tical alignment; Roadway or lane nanowing; Changes of roadway surface texture and/or colour; Increases in vegetation, including trees and plantings; Definition/separation of pedestrian/cycling facilities; Physical obstiuctions to prevent ti·affic movements; Sti·eetscaping; and Gateway treatments.
Drawbacks/challenges associated with reti·ofitting traffic calming devices in established neighbourhoods include: • • • • •
The cost associated with such devices can be prohibitive, part icularly when the devices are often intended to solve problems caused by local residents; The difficulty that may result in snow removal and other operational activities; Increased emergency response rates; The varied levels ofpublic acceptance of many devices and comprehensive sti·ategies; and Members of the affected community often believe that significant expenditures to manage traffic in residential areas ru·e not a good use ofpublic funds.
Traffic management sti·ategies have been implemented across North America with va1ying degrees of success. The success of programs apperu·s to be a direct function of the level of community I public suppo1t achieved for the proposed devices. There have been many devices I programs implemented with the objective of addressing speeding or other community ti·affic issues, that have been removed following local opposition to the sti·ategies. Enforcement is the sti·ategy most often suggested by residents when asked about their prefened solution to local speeding issues. Expe1ience from other municipalities, including those in the GTA, also appear· to indicate that the enforcement of existing ti·affic control devices is perhaps the most effective means of dealing with speeding issues. Not only will the presence of a police officer increase motorists' awareness of their driving characteristics, but provide immediate consequences of infractions to the Highway Traffic Act and/or City By-Laws. The problems identified by residents that often result in the implementation of ti·affic management sti·ategies are a function of both street design and driver behaviour. Traffic management measures effectively modify dr·iver behaviour and should be self-enforcing.
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PURPOSE AND OBJECTIVES
The purpose of this repo1t is to provide the City of Oshawa with a guide that will assist staff to respond to public concerns with speeding or infiltration in residential areas. There are many different types of traffic management measures, but not all achieve the desired results and some, in fact, can contribute to degradation in the operation and safety of the local street network and the overall quality of life. The guidelines presented in this document will, hopefully, assist the City in avoiding the implementation of ineffective strategies and measures. Before traffic management measures can be implemented, the problem must first be confirmed and potential strategies identified. The completion of "Neighbourhood Traffic Management Studies" by City staff in co-operation with area residents is necessa1y in consideration of the following broad objectives: •
Recognize public safety as the p1imary motivation in the development of traffic control plans.
•
Enhance the quality of life and liveability in Oshawa's neighbourhoods through the use of traffic management measures that reduce or control the impact of vehicular· traffic.
•
Create neighbourhood environments that suppo1t and encourage the use of all modes of travel, including non-auto modes such as cycling and walking.
•
Develop a transpo1t ation system that recognizes and accommodates to the greatest extent possible, the multitude of activities that take place along a roadway.
•
Foster broad based community suppo1t and involvement.
•
Encourage the implementation of cost-effective solutions to neighbourhood traffic problems that recognize sound engineering and planning p1inciples.
The studies should: •
Involve public/stakeholder consultation and input in all aspects of the study;
•
Follow a process that is fair, balanced and equitable and reflects the needs of all user groups; and
•
Result in a solution that reflects the City of Oshawa's funding capabilities.
Following the implementation of the traffic calming measures, follow-up studies are necessary to ensure that the original problems have been mitigated and that no other issues have ar·isen. 4
GUIDING PRINCIPLES
Traffic management strategies have traditionally been implemented in existing residential areas, although many municipalities are now planning various strategies for new subdivisions. Devices can be built into new subdivisions at little or no cost to the developers or the public. However, using a combination of good planning with the approp1iate network and road design, the need for a traffic management strategy after the residential ar·ea is fully built out can be avoided. As previously stated, neighbourhood traffic issues ar·e ve1y often a direct result of the actions of local residents. Many studies conducted across Canada have consistently proven that the main culprits of speeding on local roads ar·e the local residents of the community. Studies have also determined that sho1tcutting I infiltration is often perceived because
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of speeding. Since there is a perception that moto1ists who speed are from "outside" the community, the result is that municipal funds are often directed to deal with issues caused locally. The following guiding principles fo1m the basis of the City of Oshawa 's Neighbourhood Traffic Management Policy: 1.
The City recognizes that traffic operations, safety and environmental issues in residential areas are of concern to residents and must be addressed to enhance quality of life and liveability.
2.
The City recognizes the need to maintain and promote a hierarchical roadway system that will result in the development of a balanced, affordable, and efficient transpo1tation system for all user groups.
3.
The t:ranspo1t ation system ensures that roadway design reflects the requirements of pedestrians, including senior citizens, children and local residents, and the many other activities that take place along a roadway.
4.
The transpo1t ation system shall provide for adequate emergency vehicle access to, and circulation within, residential communities.
5.
The City recognizes the need to accommodate commercial (tmck) traffic as well as public transit.
6.
Public safety is the p1imaiy consideration in traffic management and roadway design.
7.
The process shall involve effective public/stakeholder consultation and input and follow the EA process.
8.
Implementation of traffic management plans shall be unde1taken in accordance with local bylaws and within available operational and capital funding capabilities.
9.
The City, in co-operation with the Durham Regional Police Se1vice, shall continue to encourage community pait icipation through the promotion of community-based mai·keting and education programs, such as "Road Safety Challenge", "Road Watch", "Radai· Message Boai·d", etc.
10.
In recognizing the potential environmental and societal benefits resulting from the
implementation of traffic management, the City shall seek/encourage the pa1t icipation of other levels of government in the funding of such programs. 11.
The City shall encourage the implementation of traffic management techniques in new subdivisions that will reduce the need for retrofit traffic calming measures.
5
THE ENVIRONMENTAL ASSESSMENT PROCESS
The Provincially mandated implementation process, embodied in the Environmental Assessment Act, ensures that physical changes to the transpo1t ation infrastmcture are not made without public input obtained through a comprehensive and well adve1t ised process. By following this process, the need for the change is defined and alternatives are identified, evaluated and recommended. The City of Oshawa cannot implement changes without first unde1t aking an EA study to confnm the problem, dete1mine that the desired measure will be effective, and ensure that the public accepts the change to the roadway environment. For the purposes of this repo1t , the EA study is refeITed to as a Neighbourhood Traffic
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Management Study. As defined by the Municipal Engineers Association (2000) Municipal Class Environmental Assessment, if the cost of the constrnction project is expected to be less than $1.5 million the project is subject to follow a Schedule B process; if the project cost is projected to be greater than $1.5 million, a Schedule C process is to be followed. Most traffic management projects will be Schedule B initiatives. The process shown in Figure 1 generally exceeds the requirements of the EA Process. Figure 1 represents the suggested implementation process to be followed when evaluating and assessing traffic management strategies. The activities shown in Figure 1 have been structured to ensure the appropriate EA requirements have been adhered to. Significant public involvement is necessa1y for any successful EA project. The public should be involved early, from Stage I : Problem Identification, through Stages 2 and 3. Fmt her discussion of community involvement is outlined in Section 5.2. 5.1
Process Implication
Under the new Class EA, "Traffic Calming Measures" are defined as "physical measures designed to control traffic speeds and encourage diiving behaviour approp1iate to the environment. " Although only "traffic calming" is identified in the Municipal Engineers Association document, the same standards and process should be followed before the City of Oshawa implements traffic management strategies in residential areas that may affect traffic patterns. The Class EA definition of "t:r·affic calming" encompasses all physical measures specifically intended to have tr·affic calming effects, that is, reduces vehicular speeds. Modifications to the road environment that are not specifically intended to slow traffic are not subject to the Class EA. The Class EA specifies the minimum requirements for environmental assessment planning. Proponents are responsible for customizing the process to reflect the specific needs of a project. As noted above, since most tr·affic management projects will likely be Schedule B initiatives, the general steps are defined as follows: 1.
Identify and describe the problem;
2.
Identify a reasonable range of alternative solutions to the problem, including "Do Nothing";
3.
Prepare a physical desc1iption of the area where the project is to occur and a general invento1y of the natural, social and economic environments that could be affected by the project;
4.
Identify the magnitude of net positive and negative effects on the environment for each alternative solution identified, including any mitigating measures;
5.
Evaluate all reasonable alternative solutions, including the preliminruy identification of a recommended solution if feasible;
6.
Consult with the public and review agencies;
7.
Select or confnm the prefened solution conside1ing comments from the public and review agencies; and
8.
Compile a project file and issue a Notice of Completion to review agencies and the public with the allowance of a period of at least 30 calendru· days for comments. The Notice shall include notification of the 1ight to request a Prut II Order (fo1merly known as a "bump-up").
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Oshawa
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(Hy In Motion
NEIGHBOURHOOD TRAFFIC MANAGEMENT STUDY PROCESS Problem Identification ( Residents, City Staff, Others) Preliminary Traffic Assessment TPSAction Confim1 Community
Support for Neighbourhood
Traffic Management Study
STAGE I
IDENTIFY THE PROHLE1\I
Meeting Between
Communi ty Commillee,
other Stakeholders
and Ci Staff
Advertise Start of Neighbourhood
Traffic Management Study
Community Organized
Public Meeting and/or Surveys of
Local Residents to Confirm Problem
Problem Confirmed
No Further Action Taken
if Problem or Potential
Solutions Lack Broadly
Based Communi ty Support
or City of Oshawa Support
Problem Not Confirmed
City Staff and Commun ity Reps
Meet to Discuss Alternative Measures.
Staging Options and EA Requirements
ldemify Fundi ng Requirements and
Establish Affordable Implementation Strategics
STA
