city of hamilton...improvements, required as a result of the phase 2 two-way conversion, as...

CITY WIDE IMPLICATIONS

CITY OF HAMILTON

PUBLIC WORKS DEPARTMENT

Capital Planning and Implementation Division and

CORPORATE SERVICES DEPARTMENT Budgets & Finance

Report to: Chair and Members Public Works, Infrastructure & Environment Committee

Submitted by: Scott Stewart, C.E.T. General Manager Joseph L. Rinaldo General Manager

Date: February 14, 2005 Prepared by: Harold Groen

Extension 4278 Mary Lou Tanner Extension 5101 Joseph Splier Extension 4519

SUBJECT: James Street /John Street /Charlton Avenue/St.Josephs Drive

Two-Way Conversion PW05025/FCS05029 - (City Wide Implications)

RECOMMENDATION: (a) That subject to the approval of the budget requirements identified in

recommendations (e) and (f), in accordance with the Downtown Transportation Master Plan, the General Manager of Public Works, be authorized and directed to proceed with the implementation of the James/John Phase 2 Conversion to two-way traffic operations.

(b) That the installation of a new traffic control signal at the intersection of John Street and the GO Station Exit, required as a result of the two-way conversion, be approved.

(c) That the installation of a new traffic control signal at the intersection of James Street and St. Josephs Drive, required as a result of the two-way conversion, be approved.

(d) That the roadway widenings and improvements, including various intersection improvements, required as a result of the Phase 2 two-way conversion, as identified in Appendix A be approved.

SUBJECT: James Street /John Street /Charlton Avenue/St.Josephs Drive Two Conversion (PW05025/FCS05029) - (City Wide Implications) - of 18

(e) That the following 2005 Capital Budget Submissions (already incorporated in the 2005 Capital Budget approved by COW February 16, 2005) be received for information: (i) (James - John) Two-Way Conversion Construction Phase Two = $954,125.

(This is in addition to 2003 approved capital for this project of $610,000. Total required = $1,564,125).

(ii) Transit Fleet Expansion (two buses) for this project = $720,000 (after subsidy); subject to the post conversion review impact assessment as outlined in recommendation (i).

(f) That the following 2006 Annualized Operating Budget Enhancements/Revenue shortfalls as a result of the two-way conversion be pre-approved: (i) An increase in the Transit Division annual operating budget of up to

$350,000 for the provision of up to two additional peak period buses required to maintain current service levels due to the implementation of the James/John Phase 2 Conversion.

(ii) An additional $15,000 annually for Winter maintenance service. (iii) An additional $30,000 annually to compensate for metered parking space

revenue loss. (g) That staff be authorized to prepare the appropriate Traffic and Parking By-law

amendments required to implement the two-way conversion, and submit to Committee and Council for approval prior to the two-way conversion implementation.

(h) That City staff and Contractors be authorized to remove and replace any street trees within the project limits to construct the required roadway improvements.

(i) That staff be directed to report back on the need for implementation of the expansion to Transit Service, the expansion to the Transit Fleet, and the need to implement the “Tow Away Zone” policy after the two-way conversion has been in effect for a period of six months.

(j) That the Mayor and City Clerk are hereby authorized and directed to execute all agreements and necessary ancillary documents to implement Phase 2 of the James John Conversion to Two-Way Traffic, in a form satisfactory to the Corporate Counsel.

(k) That the site plan agreements between the City of Hamilton and St. Josephs Hospital be amended and approved to reflect all changes to their accesses and driveways.

(l) That the removal of approximately 25 on-street parking meters on the east side of James Street, the west and east side of John Street south of Main Street and the west side of John Street, north of King Street, required to accommodate the two-way conversion be approved.


(m) That staff be authorized to prepare and implement a Public Information Strategy in conjunction with the Ward Councillor.

__________________________

Scott Stewart, C.E.T Joseph L. Rinaldo General Manager General Manager Public Works Department Finance & Corporate Services EXECUTIVE SUMMARY: The Downtown Transportation Master Plan was approved by Council in 2001 under the Municipal Class EA process. The first project constructed under the Plan was Phase 1 of the conversion of James and John Streets in late September 2002. In accordance with the implementation schedule and based on Phase 1 experience, staff are recommending that the James/John Phase 2 Conversion be implemented during the Summer of 2005 and that all physical works be constructed prior to September 2005. The Summer months generally have overall lower traffic volumes and the implementation in the Summer months would provide the public sufficient time to adjust to the new traffic directions, pavement markings, before Winter conditions. Appendix B outlines the timelines for the implementation of the project. This report addresses the operational and financial issues relative to this project. In addition, the report deals with the scope, traffic issues, transit issues and the impacts on the GO Transit Station, St. Josephs Hospital, and the community. Table 1 below summarizes the capital and operating costs associated with the Phase 2 Conversion of James Street, John Street, Charlton Avenue and St.Josephs Drive.

TABLE 1

Summary of Costs James/John/Charlton/St.Joseph's Dr. 2-way Conversion

CapitalEst. Traffic Signal Installation & Modification 360,000$ Est. Roadway Improvements 831,000 Est. Traffic Sign Installation & Removal 350,000 Est. Pavement Marking Removal & Installation 23,125 2 New Buses (Net Cost after Subsidy) 720,000

Total - (Excludes Utility Relocation Costs) 2,284,125$ Less 2003 Project ID 4030320386 610,000$ Net Cost 1,674,125$

Operating - Incremental Costs2 Additional Buses 350,000$ Winter Maintenance 15,000 Parking Revenue Loss 30,000

Total 395,000$


BACKGROUND: A. Downtown Transportation Master Plan The Downtown Transportation Master Plan was approved by Council in July 2001 under the Municipal Class EA process. The Plan identifies a set of changes to the transportation network that includes: - conversion of primary and secondary streets from one-way operation to two-way

operation; - identification of street sections with excess lane capacity that can be used for

improvements to the pedestrian environment; - modifications to streets that will encourage recreational and commuter cycling; - opportunities for improvements to the Gore Park Cultural District and transit system

by consolidating buses at an expanded MacNab Terminal Area; - parking policies designed to influence mode choice (auto vs. bicycle, transit and

walking) and encourage short-term high turnover parking for business / retail trips and discourage all-day commuter parking.

B. Impact of Phase 1 Conversion Traffic Flow - The first project constructed under the Plan was Phase 1 of the conversion of James and John Streets in late September, 2002. As expected, traffic is moving slower as parking manoeuvres and left turns into side streets have created more stoppages in traffic. As anticipated, the overall change is not significant; a comparison of average travel times pre and post conversion indicates that vehicle trip times have increased by about fifty seconds from Barton Street to King Street. The most significant delay to traffic is at King and James Street where vehicles turning right now only have one lane to turn resulting in queues in the peak hours. Traffic Circulation - Vehicle circulation has improved as vehicles now have better access to areas north of King Street between Mary and MacNab Streets. As expected, the full benefit of the conversion has not been realized primarily because the conversion does not extend south of Main Street. As a result, the lanes in the newly implemented directions appear to be under-utilized (northbound on James and southbound on John). C. Phase 2 Conversion Upon completion, James and John Street will operate as a two-way street from north of Barton Street to the escarpment crossings. St. Josephs Drive and Charlton Avenue between James and John Street will also be converted to two-way operations. Traffic Impacts The impacts on the traffic patterns was analyzed based on conservative traffic modelling; meaning that in the modelling of the traffic flow simulations, the traffic volumes currently using the James/John Corridor were retained and not assigned to other routes. Further, the modelled traffic volumes were assigned with generally 80% of the current traffic volumes staying on James Street and John Street and generally 20%


of the current traffic volumes being assigned to the alternative direction of travel now available on James Street and John Street. The overall modelled level of traffic service on James Street and John Street and the intersecting roadways will be reduced. This is based on conservative traffic modelling done with this project and at this time we expect this to be the worst case scenario for traffic movement. We do expect that motorists will react to the traffic changes and adjust their travel plans accordingly and this “worst case scenario” may not be realized as the adjustments occur. In essence, we anticipate traffic to move at a better level of service than the conservative traffic modelling predicts, although at a lower level of service than exists with current one-way conditions. Although the overall level of service within the traffic network being converted to two-way traffic will generally be acceptable, there are intersections and traffic movements at these intersections which will operate at or above traffic capacity and are discussed later in this report. The traffic modelling completed for this component of the two-way conversion was undertaken by IBI Group on behalf of the City. IBI Group also did the modelling for the first phase of the James/John conversion (which was correct in terms of pre and post conversion impacts on these streets). Staff of the Public Works Department (Strategic and Environmental Planning; Traffic Engineering and Operations) peer reviewed the modelling for the second phase conversion and are satisfied with the modelling. As indicated earlier, this modelling is conservative so that the worst case impacts are being predicted. This report is based on the conservative modelling. There are benefits to the proposed two-way traffic flow within the study area as follows: i) There will be improved circulation and access opportunities within the study area

with the way-finding of motorists being improved as well. ii) The local traffic circulation within the study area is forecast to improve. iii) There will be improved traffic network circulation in the vicinity of St. Josephs

Hospital and improved access opportunities into and out of the Hospital parking garages.

iv) This two-way conversion supports the initiatives of the Durand Neighborhood Traffic Study to reduce cut-through traffic on streets within the neighbourhood.

v) The Phase 2 Conversion will provide motorists with more choices in the Mountain Access Routes (Sherman Access/Cut).

vi) The new traffic signal at James Street and St. Josephs will provide improved pedestrian access and street crossings in this area. This has been a concern of St. Josephs Hospital for many years.

vii) The Phase 2 conversion will improve the traffic balance on James Street and John Street and will also promote traffic opportunities provided in Phase 1 to be realized with the completion of the two-way conversion from north of Barton Street to the Escarpment.

Having identified the benefits of the Phase 2 conversion, there will be geometric, traffic, parking and operational concerns with the Phase 2 implementation which should be noted:


i) Traffic will be moving slower resulting in more congestion, and increased time in vehicle trips and a slight increase in vehicle emissions. The traffic level of service throughout the study area will decrease but will be within the acceptable level of service standard as per our transportation policies. In some areas the capacity and delay to traffic will result in levels of traffic service where traffic flow will be at or above capacity in the peak hours. Overall, the modelled traffic volumes estimate that the level of traffic service is forecast to be acceptable. It should be noted that even if overall conditions are acceptable, there are locations such as James/St.Josephs/Herkimer which will operate at a lower level of service and thus experience increased congestion.

ii) The width of the traffic and turning lanes in many locations do not conform to acceptable lane widths as noted in the Transportation Association of Canada Geometric Design of Canadian Roads. The risk of collisions may increase especially where narrow lanes are used in opposing traffic conditions. However these lane widths are consistent with other two-way streets in older urban areas; are consistent with the lane widths in the Downtown Transportation Master Plan, and are generally in locations where road widenings are not recommended as the buildings are at the property lines.

iii) In some locations, the sidewalks and corner curb radii need to be modified to accommodate vehicle turns.

iv) Some of the existing and newly available turning movements will be tight and difficult for trucks and buses to make. This is due in part to substandard radii at intersections due to property constraints and building location constraints.

v) The removal of approximately 25 on-street parking meters will likely result in an estimated annual net revenue loss of approximately $30,000. Also the erection of No Parking and No Stopping Signs will likely result in concerns by abutting property owners/operators about the loss of parking and/or loading spaces. Staff will meet with all the property owners regarding on-street parking and will work to minimize the number of parking spaces to be removed. As part of the six-month post conversion review, we will determine if metered parking spaces can be reintroduced in some areas.

vi) A higher level of service for winter maintenance and snow removal will be required on all the streets being converted to two-way traffic under Phase 2 since the pavement widths and number of traffic lanes must be maintained to ensure the functionality of the roadways.

According to the conservative traffic modelling done for this project, it is expected that the overall operation of the signalised intersections in the study area will run at an acceptable level of service in both the AM and PM Peak Hours. There will be points of congestion, which will be described later. The project will require modifications and hardware additions to the existing traffic signal installations and traffic signing in the study area to accommodate the new direction of traffic. The two-way traffic conversion requires a new traffic signal installation at the intersection of James Street and St. Josephs Drive. This traffic signal is required to facilitate many southbound left turn movements which now face opposing northbound


traffic. This signal installation will also improve pedestrian crossings in the area around St. Josephs Hospital which has been an issue for some time. It is also expected that this traffic signal will create gaps in the flow of traffic on St. Josephs Drive to motorists exiting the parking garage. The two-way traffic conversion will also require the installation of a new traffic signal at the exit from the Go Station to John Street for safety and operational reasons. A meeting was held on site with representatives from GO Transit and City staff and GO staff completed trial runs with their inter-city buses to ensure the traffic movements from new lanes and directions were physically possible. The technical staff from GO Transit support the two-way conversion in principle. In order to accommodate the two-way traffic operations, road works are required on James Street from a point north of Charlton Avenue to St. James Place. This is required to accommodate the turning lanes, traffic lane alignment at the intersection of James Street and St. Josephs Drive and pavement widening to ensure that the lane widths are maintained at the minimum 3.0m as noted in the Downtown Transportation Master Plan. Radius improvements at a number of locations will be required to allow trucks and buses to turn corners to minimize conflicts with traffic in opposing and adjacent lanes. Even with these improvements, the turns for buses and trucks will be tight. As discovered in Phase 1, the revised geometry makes turns difficult at some intersections, particularly for larger vehicles. When there is only a single lane to turn into, the movement becomes quite difficult. At the detailed design stage, staff will provide the best turning radii possible within the road allowance limits and will still maintain minimum municipal sidewalk widths. Traffic Flow As expected, the impacts of conversion of Phase 2 are more significant than Phase 1. This is due to the fact that these portions of James Street and John Street have more traffic and therefore have less unused capacity in the roadway to allow for changes. The trade off, as in Phase 1, is improved opportunity for local circulation, plus the other benefits as outlined above. The implementation of James/John Phase 2 Conversion to two-way traffic operations is expected to result in a shift of travel patterns for traffic travelling to/from the downtown and the mountain. It is expected drivers using the upbound lanes of the Jolley Cut will shift from James Street to John Street to avoid having to shift over at St. Josephs Drive in the afternoon rush hour. Similarly, drivers using James Mountain Road will be able to continue northbound on James Street to access the core area in the morning rush hour. With the need to accommodate crossover traffic being reduced, St. Josephs Drive and Charlton Avenue will be better suited for providing access to and circulation around St. Josephs Hospital. The modelled travel times in the future PM Peak Period for southbound traffic on James Street between Gore Park and St. Josephs Drive, including additional time on St. Josephs Drive will increase by approximately 2.3 minutes to 6.1 minutes from the estimated existing travel time of approximately 3.8 minutes.


The modelled travel times in the future PM Peak Period for northbound traffic on John Street between St.Josephs Drive and Gore Park will increase by approximately 1.3 minutes to 3.8 minutes from the estimated existing travel time of approximately 2.5 minutes. The modelled travel times for the existing loop from the intersection of John Street and St. Josephs Drive northerly to Gore Park and then south on James, east on St. Josephs Drive to complete the loop will increase by approximately 2.5 minutes in the AM Peak Hour and 3.6 minutes in the PM Peak Hour. The modelling does not include the time savings for transit which may be realized by the effectively exclusive use of the southbound curb lane provided on the west side of James Street between King Street and Hunter Street for buses (see Transit Section). The success of introducing the conversion of this Phase 2 project will, in part, depend on the driver’s ability to adapt to the new travel patterns, to find the new routing that the conversion makes available, that drivers will choose different routes and create the best balance between routes. For instance, motorists travelling north on James Mountain Road in the morning are no longer required to divert to John Street via St. Josephs Drive. Instead they can travel due north all the way to Main Street and past. However, it is expected that right turns onto Main Street will be distributed between traffic using James Street and traffic using John Street. If the balance is not discovered by motorists there may be significant congestion on one street while the other street is under-utilized. It is our expectation that the completion of the entire Phase 1 and Phase 2 James Street/John Street conversion that motorists will discover and use the new travel options. The most difficult aspect of the required changes in travel patterns will be the congestion that will occur during the period after introduction until drivers find routes with less delay. This is, in part, the reason for the change over occurring in the summer. Also an extensive public orientation program will provide motorists and commuters with the information on the new traffic movement on James and John Streets. There are points in the Phase 2 revised travel patterns, which will be expected to have congestion. i) Southbound on James Street between King Street and Hunter Street in the PM

Peak Hour. The through capacity is limited and will require the diversion of southbound traffic to John Street. To address this, additional green signal time may be provided for southbound traffic on James Street at Main Street with less green time available for eastbound traffic on Main Street at James Street.

ii) Northbound on John Street at Hunter Street in the AM Peak Hour. This movement is expected to operate at capacity. However, if northbound motorists shift to James Street, this capacity issue is expected to be reduced. It is important to note that due to the current traffic conditions at the intersection of James and King Street, the traffic modelling does not assign northbound left turns from James Street to westbound on King Street.

iii) The eastbound right turns from Herkimer Street to James Street will remain close to or at capacity in both the AM and PM peak hours and delays can be expected. The modelled signal timing favours southbound movements on James Street. If additional signal time to improve the Herkimer Street traffic is provided, it would


result in increased queuing and delays for southbound traffic on James Street. We have reviewed this signal timing with our Traffic Staff and with our Consultants and have included an additional traffic controller in the cost estimates. This is required in order that the intersections of Herkimer Street and James Street and James Street and St. Josephs Drive can operate simultaneously to provide the best traffic flow possible. There may be traffic signal resynchronization times between the peak and off-peak traffic hours, occurring four times per day, in which the traffic flow will be affected. The new traffic signal at James and St. Josephs Drive provides benefits for pedestrian crossing and circulation and gaps in the flow of traffic on St. Josephs Drive. These gaps in traffic are expected to allow easier access for vehicles exiting the St. Joseph Hospital parking garage on St. Josephs Drive. However this change in traffic patterns requires a more complex movement for traffic turning from eastbound Herkimer to access the Jolley Cut in that traffic must now go through a second signalized intersection at St. Josephs Drive and James Street instead of the previous free flow movement. The traffic signal timing will be adjusted between the intersections of James Street and Herkimer Street and James Street and St. Josephs Drive to ensure that traffic operations in the area will be optimized.

iv) Critical Traffic Movements in the AM Peak Hour which will operate at or over capacity with two-way conversion are: - James/Herkimer - eastbound right/through on Herkimer Street

v) Critical Traffic Movements in the PM Peak Hour which will operate at or over capacity with the two-way conversion are: - James/Main – eastbound through traffic - James/Charlton – southbound through traffic - James/Herkimer – eastbound right/through - John/King – southbound through

Depending on the final detailed design and the travel patterns, there may be the requirement for left turn bans at several minor cross-street intersections, either during rush hours or full-time. Generally these will be for movements that are not possible now due to one-way flow of James Street or John Street. Conversely the new configuration allows for southbound lefts from John Street to Charlton and northbound lefts from James to Charlton, making for much easier access to the Sherman Access/Cut system from downtown. We have also had discussions with Canada Post regarding their Postal box pickups during the peak hours and the fact that their vehicles park within the curb lanes of the various streets. The most noticeable concern at this time is the area of James Street South, south of Hunter Street, in the southbound direction during the PM Peak Hour. The parking of Canada Post vehicles in the James Street west curb lane could have impacts on the traffic flow, delays and capacity on this section of James Street. We have had discussions with Canada Post staff regarding this issue. Canada Post has advised that they have certain schedules and time limitations at the Sorting Terminal on Millen Road with connections to air freight that also must be maintained. With the


approval of this Phase 2 work, staff will meet with Canada Post to seek a resolution on this matter. Concluding Comments – Traffic Flow: The effect of the two-way conversion will be to reduce the potential of the roadway to absorb any future growth in traffic volumes or react to rain and snow or illegal vehicle stopping, in that the roadway will be operating at or near capacity at the identified locations during the Peak Hour periods. Neighbourhood Impacts The implementation of the proposed geometric design improvements will include the construction of a raised concrete median island on James Street, south of St. Josephs Drive eliminating northbound left turns onto Markland Street (presently restricted by polypost illuminators). This island construction is in conformance with the guidelines of the Durand Neighborhood Traffic Calming study. An opening will be provided in the raised island to provide bicycle access northbound on James Street from Markland Avenue. With traffic travelling north on James Street, mountain traffic destined to the west can now also choose to turn left at Charlton Avenue or Hunter Street, both designated as arterial roadways. Changes in the area of St. Josephs Drive will require modification to the access to the residential area of the Corktown Neighborhood to the south. The northbound through move on John Street from the neighborhood across Arkledun Avenue (Jolley Cut) will not be allowed once Phase 2 is implemented. Traffic that would normally exit the neighborhood at this location to John Street north will have to use one of the other three existing neighborhood access locations (Kingsway, Mountwood or Freeman). Although this traffic movement will be eliminated it will improve safety at a very geometrically complex intersection. Impact to Public Transit There are 14 bus routes contributing to 46 bus movements per hour in peak period on each of the affected sections of James and John Street. The transit studies completed by IBI Consultants in August, 2004 indicate one of the 14 bus routes is currently running under the 10% desirable recovery time before Phase 2 Implementation. The transit studies have also concluded that to provide transit service with the expected desired recovery times under Phase 2 conversion, the one bus to correct current deficiencies must be added to the bus routes as well as another bus which is required due to the Phase 2 conversion. These travel times are based on conservatively modelled (worst case) travel times completed by IBI Group and confirmed by staff in Public Works. Therefore the modelled net change to the system due to the James/John Two-way Conversion may be the addition of up to one bus. As part of the review of the Public Transit concerns, the following items were also reviewed to determine whether these improvements or opportunities could result in enough time savings within the transit system using the Jolley Cut Mountain access routes to the Downtown to compensate for the increased travel route time due to the James/John Phase 2 Conversion:


TRANSIT CONCERNS / ISSUES REVIEWED Concern Status 1) Skew signal timing to favour done

NB John / SB James

2) Signal Priority - Transit Must review on system wide basis 3) Install Except Bus Tabs at SB James to WB King no significant time savings 4) Inverness / James - minimize delay no significant time savings 5) Inverness / Wellington - minimize delay no significant time savings 6) Sanatorium / Garth - bus actuation no significant time savings 7) Fennel / West 5th - minimize delay no significant time savings 8) Rymal / Wentworth - signal timing under review 9) James /John - maintain 2 through lanes done 10) James SB, John NB - prohibit parking / loading / stopping in recommendation

11) Evaluate bus merge / James / Charlton / St. Josephs done

12) Update project drawings - Bus locations done 13) Upper Wentworth - Mohawk to Linc - done solutions to through traffic etc. 14) Sherman Access - NB/SB buses to done cut through SB peak hour flow

Staff are reviewing traffic operations on Charlton Avenue to determine whether bus movements can be permitted. There is an existing bay on the southside of Charlton Avenue and with the main entrance to the Hospital now being on Charlton Avenue, there are merits to providing some transit service on Charlton Avenue. The only physical constraints are the right turn movement from eastbound Charlton Avenue to southbound on John Street which is currently under review as additional lands may be required to construct the appropriate turning radius. In general, while it is forecast that the majority of the routes can accommodate the expected delays and maintain adequate desired recovery times, service levels on some routes will not be maintainable; i.e. the time between bus arrivals will increase without additional buses being put into service. Based on the fact that the conservatively modelled travel time for roundtrip mountain routes using James and John Street is predicted to increase on average about 3.5 minutes, at least one route grouping will be affected by the project such that the desired recovery time will become inadequate. If the round trip increases by 3.5 minutes, as estimated, a total of two buses (one for Route 23 and one for Route 24) would be required to ensure that all routes operate within a 10% desired recovery time or better. According to the Consultant report, one current bus route does not meet the 10% desired recovery time and therefore it can be implied that one bus should be added to the route under current conditions and that the net effect of the two-way conversion is the requirement of one additional bus.


Buses have a built in desired recovery time (i.e. cushion) to account for unforeseen delays due to weather, posted speed limits, and to give the drivers necessary breaks in accordance with Provincial Legislation and the Employment Standards Act. For example, a roundtrip route may take sixty minutes but it is scheduled with an extra six minutes recovery time to ensure buses arrive on schedule. Delays caused by the two-way conversion will reduce the available recovery time for the rest of the route. With respect to the installation of transit priority signals, our studies conclude that the benefits can be up to five to ten seconds per bus per intersection. This time saving would be a best case scenario and the time savings will depend on the operating strategy for the signal priority system. In reality, competing traffic demands in the downtown area, such as the need to maintain progression on east-west routes such as Main Street and King Street and the need to provide minimum pedestrian crossing times, will limit the extent to which green time can be taken from the east-west routes and added to James Street and John Street. As the proposed future two-way signal timings have maximized the north-south green times, the scope for taking green time from the east-west streets is limited, without increasing signal cycle times. Due to the difficulty of operating transit signal priority in a downtown area with short block lengths, a full scoping study to determine the most appropriate technology and operating strategy should be carried out. Subject to a strategy that aggressively favours transit vehicles, a best-case scenario would be up to sixty seconds time saving per bus on a round trip. In conclusion, the study completed by IBI indicates that the existing bus routes using the Jolley Cut are deficient by one bus already (based on 10% desired recovery time). The conservative traffic modelling indicates that up to one additional bus will be required due to the additional travel times predicted due to the Phase 2 conversion. Transit Issues - Concluding Comments Our studies indicate that one of the Transit Routes on the Jolley Cut is currently running under the 10% desired recovery time and that with the James /John Phase 2 Conversion to two-way traffic, it is expected that two Transit Routes on the Jolley Cut will be operating under the 10% desired recovery time. These anticipated transit requirements are based on conservative traffic modelling. Although not expected, it should be noted that should motorists not adjust or change their travel patterns in the study area as expected, there may be an impact to the transit requirements if the additional modelled traffic delay increases from the predicted 3.5 minutes to seven minutes. Should this occur the number of buses required would increase to as many as six buses as all the other transit route segments would fall below the 10% desired recovery time threshold. The technical reviews by IBI Group, and the Public Works Department staff conclude that this is not expected to occur. Based on the proposed requirement for up to two additional buses to meet the 10% desired recovery time for the bus routes using the Jolley Cut, it is recommended that the expansion of the Transit Fleet by up to two buses, at a net cost of $360,000 per bus after subsidy, be funded, as required, from the Transit Capital Reserve. The Transit Division annual operating budget may be required to increase by up to $350,000 should the reason for additional peak period buses be required as a result of the


James/John Phase 2 Conversion. This will be part of the six month post conversion review; the estimated costs are included for complete financial analysis should the two buses be required. In the interim staff will monitor the transit operations as the James/John Phase 2 implementation occurs and it is our intention to retain some of the current transit vehicles currently being placed out of service. These buses will be used should the need arise to add them to the network on a temporary basis until motorists adapt to the new travel routes and way-finding available with the two-way conversion. We will also report back to Council once the conversion has been in place for six months to assess the field conditions in terms of traffic operations. This will ensure that decisions on transit operations will be made both with the conservative modelling and the actual traffic operations. The two-way conversion is intended to enhance the Transit Service Delivery Program. A business case to utilize the Gas Tax Funding may be an option to determine if the revised program would qualify under the Provincial criteria of the Gas Tax Program. Loading, Parking and No Stopping Regulations and Enforcement In order to implement the Phase 2 conversion, many changes to the on-street parking and loading are necessary to maintain the traffic flow and facilitate the movement of trucks and buses. Based on the draft functional design plans, the implementation will require the relocation/removal of the following parking spaces: i) On-street Parking and Loading will now be prohibited during the AM and PM Peak

Hours and a No Stopping Regulation will be required on all the Phase 2 streets being converted to two-way traffic during those time periods.

ii) Charlton Avenue - the current eleven meter parking spaces can be retained on the north side of Charlton Avenue. However No Stopping Regulations are required during both the AM and PM Peak Hours.

iii) James Street - sixteen metered parking spaces will be removed permanently. This will result in seven metered spaces being retained between Charlton and Young Street. However No Stopping Regulations are required during both the AM and PM Peak Hours. It is assumed that the three parking meters on the east side of James Street, north of Main Street will be maintained as this section of James Street currently operates as two-way traffic.

iv) John Street - five metered spaces on the west side between Main and Hunter are to be removed permanently. We understand that these parking meters were recently installed on John Street with the understanding with the adjacent owners that they would be removed at such time as John Street is converted to two-way traffic. The nine metered spaces on the east side of John Street between Young and Haymarket are proposed to be relocated to the west side of the street. It may be possible to fit two more spaces but will be subject to detailed field review. However, No Stopping Regulations are required during both the AM and PM Peak Hours.

v) John Street – north of King Street on the west side. In order to provide for traffic lane balance at this intersection, the parking bay and the first four metered parking


spaces on the west side of John Street, north of King Street, will have to be removed permanently.

In summary, the Phase 2 conversion will require the permanent removal of approximately 25 metered parking spaces and replacing them with No Parking/No Stopping regulations on the streets being converted. Further, No Stopping Regulations are required during the AM and PM Peak Hours. Parking and loading enforcement will be a critical issue with Phase 2 implementation in order to maintain adequate flow for both private and City (Public Transit, EMS) motor vehicles. In order to maintain traffic flows in the AM and PM Peak Hours, the City may be required to tow away illegally parked vehicles which obstruct traffic flow. Staff recognize that the City does not tow vehicles currently in use unless required by emergency services, snow emergencies, or other emergencies. Should the stopping of vehicles during “No Stopping” periods become problematic and result in significant congestion and delay, the Hamilton Municipal Parking System has estimated that the annual operating costs of enforcing the “Tow Away Policy” on the streets converted to Two-Way traffic would range from $125,000 to $130,000 annually. These costs are based on the fact that a successful response to a Request for Proposal for Towing Services issued by the City would be received. In order to provide “vehicle releases” after normal business hours, it is estimated that an additional annual cost of $50,000 to $60,000 will be required for additional staff time to provide this service after hours. Should Council approve the James/John Phase 2 Conversion to two-way traffic, the Hamilton Municipal Parking System will be requested to prepare a “Tow Away Policy” for these streets and report back to Committee and Council on this matter. In this way, the “Tow Away” Policy can be implemented, as required, should the need arise. The monitoring of the Phase 2 conversion will include an assessment of the need to implement this Policy. Traffic delays may also be increased at certain times due to DARTS, with several customer locations in and around St. Josephs Hospital, for pick up and drop-off on the street due to the size of their vehicles. Public Works staff will be meeting with DARTS in an effort to schedule these drop-offs into the off-peak traffic periods as much as possible. Emergency Services The Downtown Transportation Master Plan Study and meetings with EMS in 2003, confirmed that the mandated policy of “4 minute response - 80% of the time” for fire response will not be exceeded in any downtown areas. This is primarily because there will be more direct routing for emergency fire vehicles accessing fire zones and better access opportunities to St. Josephs Hospital. In Minutes of a Meeting in Spring, 2003, staff from both the Fire Department and EMS confirmed their ability to accommodate changes to traffic flow on James Street and John Street. At that time, both EMS and the Fire Department indicated their support for the project. Staff also met with representatives of St. Josephs Hospital on June 29, 2004. At that time, the technical staff of the Hospital reviewing this matter approved of the proposed


two-way conversion in principle. They agreed that the Phase 2 Conversion will improve the overall accessibility to the Hospital and the Parking Garages. Secondly the installation of a traffic signal at James Street and St. Josephs Drive would provide much improved pedestrian access at this intersection and provide improved pedestrian connectivity from the neighbourhood areas west of James Street. With this traffic signal installation, we expect more gaps in the traffic flow to allow motorists to exit the parking garage on St. Josephs Drive. Although the direction of the emergency access ramp adjacent to James Street would be reversed, it would still operate satisfactorily. The City would be required to construct access, curb and signing improvements on Hospital property. Prior to construction, the City must secure the Authority to Enter hospital property to construct the required improvements. Further, City staff must also prepare a directional signage proposal on Hospital property at the James Street access across from Herkimer Street. Consultation As noted previously, the implementation of this Phase 2 Conversion will require a concerted and cooperative effort through the Media, Public Information Centres, kitchen table meetings with the affected commercial establishments and area residents. Upon approval of the recommendations of this report, a strategy will be developed in conjunction with the City Communication staff. Project Updates on these matters will be submitted to Council. ANALYSIS OF ALTERNATIVES: The Downtown Transportation Master Plan recommended that Phase 2 of the James/John Conversion be completed subsequent to Phase 1 in the 2002 to 2004 time frame. As Phase 2 is an approved project and instrumental in realizing the potential of the Phase 1 conversion, the option to not proceed with the project is not being considered in this report. The only alternatives under review would be the measures taken to mitigate the Public Transit issues and the funding required to proceed with the Phase 2 implementation.


FINANCIAL/STAFFING/LEGAL IMPLICATIONS:

TABLE 1

Summary of Costs James/John/Charlton/St.Joseph's Dr. 2-way Conversion

CapitalEst. Traffic Signal Installation & Modification 360,000$ Est. Roadway Improvements 831,000 Est. Traffic Sign Installation & Removal 350,000 Est. Pavement Marking Removal & Installation 23,125 2 New Buses (Net Cost after Subsidy) 720,000

Total - (Excludes Utility Relocation Costs) 2,284,125$ Less 2003 Project ID 4030320386 610,000$ Net Cost 1,674,125$

Operating - Incremental Costs2 Additional Buses 350,000$ Winter Maintenance 15,000 Parking Revenue Loss 30,000

Total 395,000$

i) Public Information Program In order to successfully implement the James/John Phase 2 Conversion to two-way Traffic, an extensive public information strategy must be developed. We anticipate that this will include a minimum of two Public Information Centres, a minimum of two Public Notices in each of the established newspapers in the Hamilton area, kitchen table meetings with the affected commercial establishments and area residents to review parking, loading implications, and traffic movement. Based on the Phase 1 conversion, we anticipate that a minimum of $20,000 should be allocated and funds are available in the 2005 Operating Budget for this. POLICIES AFFECTING PROPOSAL: Phase 2 of the conversion of James Street, John Street, Charlton Avenue and St. Josephs Drive is a component of the Provincially approved and Council endorsed Downtown Transportation Master Plan Environmental Assessment. Completing Phase 2 will satisfy requirements of the Class Environmental Assessment regarding the implementation of approved projects.

CONSULTATION WITH RELEVANT DEPARTMENTS/AGENCIES: The following were consulted in the preparation of this report: 1. Public Works - Operations & Maintenance and Transit Divisions.


2. Corporate Services - Budgets & Finance. 3. Planning & Development - Long Range Planning and Downtown Renewal (Municipal

Parking System) Divisions. 4. GO Transit. 5. St. Josephs Hospital staff. 6. EMS and Fire - Emergency Services (consulted in March 2003 and a meeting to

update the agency is scheduled). CITY STRATEGIC COMMITMENT: Phase 2 implementation is part of the City’s overall plan to encourage a change in travel modes. The conversion of James Street, John Street, Charlton Avenue and St. Josephs Drive to two-way traffic operations is expected to improve traffic circulation in the downtown. The two-way conversion may reduce overall travel speeds on these streets and will improve pedestrian crossing movements in the vicinity of St. Josephs Hospital. The two-way conversion will improve traffic accessibility and movements on these streets which are expected in downtown urban areas. This will allow for further improvements in safety and liveability in the downtown which is consistent with the Vision 2020 Sustainable Plan and Council’s Mission, Vision, Values and Goals.


APPENDIX A

DRAFT FUNCTIONAL DESIGN DRAWINGS

TWO-WAY CONVERSION

JAMES STREET/JOHNSTREET/ CHARLTON AVENUE/ST. JOSEPHS DRIVE

SUBJECT TO DETAIL DESIGN

city of hamilton...improvements, required as a result of the phase 2 two-way conversion, as...

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