Wentworth Street and Sanford Avenue Two Way Traffic Study (PW14

CITY OF HAMILTON PUBLIC WORKS DEPARTMENT Transportation Division

TO: Chair and Members Public Works Committee COMMITTEE DATE: August 14, 2014 SUBJECT/REPORT NO: Wentworth Street and Sanford Avenue Two-Way Traffic Study (PW14086) - (Ward 3) (Outstanding Business List Item) WARD(S) AFFECTED: Ward 3 PREPARED BY: Alan Kirkpatrick (905) 546-2424, Extension 4173 SUBMITTED BY: Dan McKinnon Acting General Manager Public Works Department SIGNATURE:

RECOMMENDATION (a) That a proposed Municipal Class Environmental Assessment (EA) Study to investigate the two-way traffic conversion of Wentworth Street and Sanford Avenue, from Delaware Avenue to King Street, not be undertaken as an EA is not required for this purpose; (b) That consideration of the two-way traffic conversion of Wentworth Street and Sanford Avenue, from Delaware Avenue to King Street, be referred to the updated City-Wide Transportation Master Plan in 2014/2015; (c) That this item be identified as completed and removed from the Public Works Committee Outstanding Business List.

EXECUTIVE SUMMARY Staff was directed to undertake a Municipal Class Environmental Assessment (EA) process to investigate the conversion of Wentworth Street and Sanford Avenue, from Delaware Avenue to King Street, to a two-way traffic operation, at an anticipated study cost of one hundred thousand dollars ($100,000). Staff’s review of the Municipal Class EA process determined that the consideration of the conversion of a street from one-way to two-way traffic operation does not require an EA process be undertaken, provided no significant physical construction is required to complete the traffic operational conversion process. Committee and Council have been discussing the matter of one-way to two-way traffic operational conversions for a number of streets in the City and have directed staff to identify an implementation strategy for converting a number of one-way roads identified in the 2008 Downtown Transportation Master Plan (DTTMP) Update. A list of these

OUR Vision: To be the best place in Canada to raise a child, promote innovation, engage citizens and provide diverse economic opportunities. OUR Mission: WE provide quality public service that contribute to a healthy, safe and prosperous community, in a sustainable manner. OUR Values: Accountability, Cost Consciousness, Equity, Excellence, Honesty, Innovation, Leadership, Respect and Teamwork SUBJECT: Wentworth Street and Sanford Avenue Two-Way Traffic Study (PW14086) - (Ward 3) - Page 2 of 9

roads is provided later in this report. Ten (10) roads have been converted and eight (8) other roads are to be completed. Council has directed staff to convert and redesign Rebecca Street, from John Street to Wellington Street to accommodate two-way traffic in 2014 utilizing funds from the Traffic Calming account. Council is also requesting a schedule of one-way to two-way traffic operational changes to the remaining seven (7) roads from the DTTMP, at a rate of approximately two (2) or more roads per year, subject to budget approval. Staff will include a Road Conversion Capital Budget Detailed Sheet in the 2015 - 2024 Budget to be reviewed during the Capital budget deliberation process. In addition, other one-way roads have been added to a List of Roads for Conversion Consideration. The proposed process to study these roads on the additional list will be undertaken through the updated City-Wide Transportation Master Plan (CWTMP) and reported back in 2015 with a proposed implementation and funding schedule. This process is recommended in order to examine a number of conversion possibilities and determine priorities, benefits, impacts and costs of converting one-way streets from a broader perspective rather than one-off selections, or isolated sections of a street within the length of a current one-way street. Both Wentworth Street and Sanford Avenue are on the List for Conversion Consideration and will be included in the CWTMP Update and will be reported to Committee during that process. Alternatives for Consideration - See Page 8

FINANCIAL - STAFFING - LEGAL IMPLICATIONS Financial: The suggested funding of one hundred thousand dollars ($100,000) for a proposed EA review for Wentworth Street and Sanford Avenue is not required for this purpose. If staff is directed to implement traffic operational changes on Wentworth Street and Sanford Avenue, funding sources to implement the changes will be required as no funds have previously been established for this activity. Staffing: N/A Legal: N/A

HISTORICAL BACKGROUND Staff was directed to investigate a review of one-way to two-way traffic operational changes on the following roads: Wentworth Street and Sanford Avenue a) That staff be directed to undertake a proper Environmental Assessment to investigate the conversion to two-way traffic of Wentworth Street and Sanford

Avenue, from Delaware Avenue to King Street East, and report back with the results to the Public Works Committee; and b) That funding for the Environmental Assessment estimated in the amount of one hundred thousand dollars ($100,000) be derived from Specific Area Transportation MP Account #4030955369. Staff’s work program reflects that the City’s one-way traffic network be included in the CWTMP Update to determine which roads in the one-way street network could be converted to two-way traffic operation based on a broader review of the transportation network and priorities, benefits, impacts and costs. Funds for an EA of one hundred thousand dollars ($100,000) were identified to be used for the review of Wentworth Street and Sanford Avenue. Staff has determined that an EA process is not required, therefore, staff is recommending that the funds be reallocated for the implementation of the one-way to two-way conversion traffic operational conversions. The issue of one-way streets being converted to two-way traffic operations streets has been gaining momentum recently along with the concept of the City implementing a Complete Street design approach to City’s street network. A “Complete Street” is a road allowance designed to accommodate more than just automobiles. It can include other road uses such as transit and transit lanes, bus stop amenities, bicycles and bike lanes, pedestrian amenities including wider sidewalks, OADA requirements and streetscape features, taxi stops, parking, traffic calming features, etc. The challenge becomes how to accommodate and prioritize these needs. A Complete Street does not have to be a two-way street. The design concept can take several forms and does not necessarily reflect a “one-design-fits-all” outcome. The philosophy would suggest a street be designed and operated to balance, where possible, the competing needs of all road users, including safe access for pedestrians, bicyclists, motorists, and public transportation users of all ages and abilities. The level of service for all modes of transportation is taken into consideration and one mode does not necessarily dominate another. The outcome hopefully results in a safer, more active environment and provides for a more livable local community. Increasing safety and walkability for transit users in particular has been highlighted as an important part of increasing transit ridership. As a whole, these policies have aimed at raising the profile of other modes relative to the automobile and the health, social, economic, and environmental benefits that can be attained through a more balanced approach to mobility. Following a Complete Streets Transportation Summit in 2012, interested citizens carried on with their own reviews, street audits and analysis of possible improvements to roads within their communities, including intersection and mid-block crossing facilities and one-way to two-way street traffic conversion options, including factors of:  Traffic calming and enhanced walkability supporting a vibrant and livable local communities

 Impacts on retail/commercial areas and whether the conversion will be beneficial to them These issues will be carried forward for consideration to make sure any one-way to two- way traffic operation conversion projects are successful. Committee will recall Report PW14060, dated June 16, 2014, regarding Traffic issues on Sanford Avenue. The approved recommendation included: “That the existing 50km/h speed limit on Sanford Avenue South, between Delaware Avenue and Main Street, be reduced to 40 km/h”. This change and the associated by-law amendment have been implemented. In addition to the speed limit change, Traffic Services also arranged for the installation of a portable speed hump on this section of Sanford Avenue to further address the resident’s concerns. Appendix “A” of this report provides additional information regarding the issues to be considered in one-way to two-way street traffic operation conversions Roads for Conversion Consideration The Downtown Transportation Master Plan - 2008 (DTTMP) identified the following roads to be converted from one-way to two-way traffic operations. Table 1.0 reflects those roads that have been converted: Table 1.0 Completed Conversions Date Road Name From To Reference Implemented 1 James Street North Main Street Murray 2002 DTTMP (2001) East Street West 2 John Street North Main Street Strachan 2002 DTTMP (2001) East Street East 3 Hess Street South Herkimer Jackson 2004 Durand TMP Street Street West (2002) 4 Caroline Street South Herkimer Main Street 2004 Durand TMP Street West (2002) 5 James Street South St. Joseph’s Main Street 2005 DTTMP (2001) Drive East 6 Charlton Avenue East John Street James Street 2005 DTTMP (2001) South South 7 John Street South Jolley Cut Main Street 2005 DTTMP (2001) East 8 St. Joseph’s Drive John Street James Street 2005 DTTMP (2001) South South 9 York Boulevard/Wilson Bay Street Victoria 2010 DTTMP (2001) Street North Avenue North 10 McNab Street North Cannon Street Guise Street 2013 DTTMP (2001/07) West West & NETMP

Table 2.0 reflects those roads identified in the DTTMP to be converted, but have not been converted: Table 2.0 - Roads to be Converted Date Road Name From To Reference Implemented 1 Bold Street James Street Queen Street 2007-2012 DTTMP (2001/07) South South (parking demand) 2 Caroline Street South1 Main Street York 2007-2012 DTTMP (2001/07) West Boulevard 3 Duke Street James Street Queen Street 2007-2012 DTTMP (2001/07) South South (parking demand) 4 Hess Street South York Barton Street 2007-2012 DTTMP (2001/07) Boulevard West 5 Hughson Street North Wilson Street Barton Street 2007-2012 DTTMP (2001/07) East 6 King William Street John Street Wellington 2007-2012 DTTMP (2001/07) North Street North 7 Park Street North York Barton Street 2007-2012 DTTMP (2001/07) Boulevard West 8 Rebecca Street2 John Street Wellington 2007-2012 DTTMP (2001/07) North Street North 9 John Street North3 Strahan Street Burlington 2016 (TBC) NETMP Street In addition to these previously identified roads for conversion, Table 3.0 includes a listing of additional roads have been brought forward for consideration: Table 3.0 - Future Conversions under Consideration

Road Name From To 1 Queen Street North4 York Boulevard Stuart Street 2 Queen Street North Main Street West York Boulevard 3 Queen Street South Herkimer Street Main Street West 4 Bay Street North Main Street West Cannon Street West 5 Bay Street South Herkimer Street Main Street West 6 Cannon Street West/Wilson Street Bay Street/ Queen Street North Sherman Avenue North 7 Wilson Street Victoria Avenue North Sherman Avenue North

1 Caroline Street South from Main Street to King Street was converted in 2012 2 Council direction to implement in 2014 3 Identified for conversion and is currently funded through the implementation of the North End Transportation Master Plan (NETMP). Implementation will be coordinated with the CN reconstruction of the John Street Bridge. Possible implementation could be 2016. 4 Queen Street, between Stuart Street and Barton Street was converted to two-way traffic operation in 2013

Road Name From To 8 Victoria Avenue North Burlington Street Barton Street 9 Wellington Street North Burlington Street East Ferrie Street East 10 Wentworth Street North Delaware Avenue Barton Street East 11 Sanford Avenue South Delaware Avenue Barton Street East 12 Sherman Avenue North Wilson Street Burlington Street East 13 Birch Avenue Wilson Street Burlington Street East 14 Locke Street South Main Street West King Street West 15 Catherine Street South Not specified Not specified 16 Mary Street Not specified Not specified 17 Main Street West Dundurn Street North King Street West 18 King Street West Dundurn Street North Main Street West

POLICY IMPLICATIONS AND LEGISLATED REQUIREMENTS Municipal Class Environmental Assessment Process The Class Environmental Assessment (EA) study follows the planning and design process of the Municipal Class Engineers Association (MEA), Municipal Class, Environmental Assessment, October 2000, as amended in 2007 and 2011. Within the EA documentation, the following minor reference to the EA process of one-way to two- way street conversions includes: General Operation and Maintenance of Linear Paved Facilities and Related Facilities Cost limit for project approval under Schedule

Pre-approved Re-designation of an existing General Purpose Lane (GPL) or High A A+ B C Occupancy Vehicle (HOV) Lane through signage or pavement marking modifications (i.e. not requiring physical construction):  New parking or turning lane markings on an existing roadway  Conversion of one-way to two-way streets  Re-designation of existing GPL to HOV or HOV to GPL NL NL * A - Normal or emergency operational & maintenance activities. The environmental effects of these activities are usually minimal and, therefore, these projects are pre-approved * A+ - These projects are pre-approved, however, the public is to be advised prior to project implementation. The manner in which the public is advised is to be determined by the proponent * NL - No Financial Limit * The above table is from the Municipal Class Engineers Association (MEA), Municipal Class, Class Environmental Assessment, October 2000, as amended in 2007 and 2011: page 1-5 Therefore, based on staff’s interpretation of the EA process, the above information indicates that the Municipal Class EA process is not required to review the conversion of a one-way street to a two-way street traffic operation, when the conversion only includes revised signage, pavement markings and signalized intersection upgrades and

does not include reconstruction. All related traffic operational needs will be based on established practices that apply to all roads in the City.

RELEVANT CONSULTATION No specific public consultation has been undertaken on conversion of Wentworth Street and Sanford Avenue other than to confirm that this specific request for a Municipal Class EA is not required when investigating a one-way street to two-way street conversion. The proposed public consultation would be included during the CWTMP process. The proposed conversion of Sanford Avenue from Delaware Avenue to King Street will require the prohibition of on-street parking on one side of the road. Sanford Avenue, from Delaware Street to Main Street has a three (3)-lane wide cross section with on-street parking on both sides. In order to facilitate for the one-way traffic conversion, one-lane will be for northbound traffic, one-lane for southbound traffic and the remaining lane for on-street parking. For the proposed conversion of Wentworth Street from Delaware Street to King Street, it is a more difficult section of road to convert to a two-way traffic operation. Additional information on the conversion challenges is provided later in this report. Hamilton Municipal Parking Services have provided general comments and observations regarding possible changes to parking and loading with the conversion of roads. Typically, where two-way traffic operational conversions have occurred, there has been a loss of on-street as a result of corner restrictions, implementation of “No Stopping” instead of “No Parking” or other traffic operational matters that have changed when the road was converted from one-way to two-way traffic. In addition, the issue of loading/unloading zones can be as controversial as changes to the on-street parking locations. The lack of loading/unloading or picking-up/discharging disabled persons can affect a business and a change of this nature will have to be looked into in great detail if the conversion is to take place. For both Sanford Avenue and Wentworth Street, the land use from Delaware Avenue to Main Street is generally residential, while there is more commercial uses between Main Street and King Street.

ANALYSIS AND RATIONAL FOR RECOMMENDATION Committee and Council have been discussing the one-way to two-way traffic conversion subject and have directed staff to identify an implementation strategy for converting roads identified in the Downtown Transportation Master Plan (DTTMP 2008). Eight (8) roads have been converted and eight (8) additional roads are to be completed. In addition, other one-way roads have been added to a List of Roads for conversion consideration. The process to study these roads on the additional list will be undertaken through the updated City-Wide Transportation Master Plan (CWTMP) and reported back in 2015 with an implementation and funding schedule. This process is recommended in order to examine a number of conversion possibilities and determine priorities, benefits, impacts and costs of converting one-way streets from a broader perspective.

Both Wentworth Street and Sanford Avenue are on the List for Conversion Consideration and will be referred to the CWTMP Update and will be reported to Committee during that process.

ALTERNATIVES FOR CONSIDERATION Council has provided staff with directions to report back on the roads identified in the List of Conversion Considerations with regard to priorities, benefits, impacts and costs of converting to one-way traffic operation. Staff will undertake this review through the CWTMP Update and report back. If Council directs staff to proceed with implementing Wentworth Street and Sanford Avenue to two-way traffic operations prior to the CWTMP Update, this could be accomplished following the identification of funds as outlined in Appendix “B”. The conversion of one-way streets to two-way streets, particularly multi-lane one-way streets which require traffic lane reductions result in traffic lane transitional issues, parking issues, capacity and congestions issues and may have the potential for motorists to utilize other roads because of the conversions. All of these facts, and others mentioned above requires detailed review from an overall network perspective to reduce the impacts as much as possible. Staff is aware of the sensitivity involving changes to on-street parking. The conversion of Sanford Avenue would impact on-street parking on one side of the road. If Sanford Avenue is converted to two-way operation, staff suggests that on-street parking be prohibited on the west side of Sanford Avenue from Delaware Street to King Street for lane alignment purposes. As an alternative, if the proposed traffic conversion is for the section on Sanford Avenue only between Delaware Avenue and Main Street, parking on one-side of Sanford Avenue could be on either side of Sanford Avenue and can be determined with further discussion with the residents and Councillor’s office.

ALIGNMENT TO THE 2012 - 2015 STRATEGIC PLAN Strategic Priority #1 A Prosperous & Healthy Community WE enhance our image, economy and well-being by demonstrating that Hamilton is a great place to live, work, play and learn. Strategic Objective

1.2 Continue to prioritize capital infrastructure projects to support managed growth and optimize community benefit. 1.4 Improve the City's transportation system to support multi-modal mobility and encourage inter-regional connections.

APPENDICES AND SCHEDULES ATTACHED Appendix “A” Additional Information related to Road One-way to Two-way Conversion Appendix “B” Traffic Operational Considerations with the Two-way Conversion for Sanford Avenue and Wentworth Street