April 1, 1999

  To:East York Community Council

 From:Andrew Koropeski, Director, Transportation Services, District 1

 Subject:Traffic Operations on Woodville Avenue, between Pape Avenue and Donlands Avenue

Traffic Regulations at Pepler Avenue and Woodville Avenue

 Ward:1 (East York)

 Purpose:

 To report to the April 28, 1999, meeting of the East York Community Council on traffic operations on Woodville Avenue, between Pape Avenue and Donlands Avenue, and on traffic regulations at the intersection of Pepler Avenue and Woodville Avenue.

 Financial Implications:

 There are no financial implications associated with the recommendations in this report.

 Recommendations:

 It is recommended that:

1.this report be received for information of East York Community Council; and

 2.the Toronto Police Service be requested to enforce the "Stop" control at the intersection of Woodville Avenue and Rivercourt Boulevard.

 Background:

 East York Community Council, at its meeting of January 20, 1999 requested the Commissioner of the Works and Emergency Services Department to submit a report to the East York Community Council on the feasibility of introducing traffic calming measures in the area of Woodville Avenue in response to a petition signed by 65 residents of Woodville Avenue.(Item No. 6(p))

 Additionally, East York Community Council at the same meeting recommended that the Commissioner of Works and Emergency Services submit a report on a petition signed by approximately 19 residents of Pepler Avenue, between O'Connor Drive and Woodville Avenue, requesting that Pepler Avenue be changed to a northbound one-way street and that all-way stop control be implemented at the intersection of Pape Avenue and Woodville Avenue.

Comments:

 Staff assessed traffic volumes on Woodville Avenue and neighbourhood infiltration; the feasibility for installing speed humps or traffic calming; the operational safety on Woodville Avenue; school pick up and drop off activities; and the operation of the "Stop" sign control on Woodville Avenue at Rivercourt Boulevard.

 This report is divided into two parts: "Traffic Operations on Woodville Avenue, between Pape Avenue and Donlands Avenue" and "Traffic Regulations at Pepler Avenue and Woodville Avenue".

 (a) Traffic Operations on Woodville Avenue, between Pape Avenue and Donlands Avenue

 (i) Traffic Volumes on Woodville Avenue and Neighbourhood Infiltration

 Woodville Avenue, between Pape Avenue and Donlands Avenue, is a two-way, two-lane residential street, and is approximately 7.2 metres wide and 600 metres in length. "Stop" sign controls exist at Pape Avenue, Wolverton Avenue, Rivercourt Boulevard and Donlands Avenue. The speed limit on Woodville Avenue is 40 km/h. A map outlining the area is attached to this report.

 The following table outlines the existing parking regulations on Woodville Avenue, between Pape Avenue and Donlands Avenue:

 Table 1 - Existing Parking Regulations on Woodville Avenue

 There are 6 roadways that connect Woodville Avenue with O'Connor Drive, between Pape Avenue and Donlands Avenue. The East York Community Centre and William Burgess Public School have two separate access driveways on the south side of Woodville Avenue, easterly from Pape Avenue to approximately 80 metres east of Pepler Avenue.

 Staff conducted an eight-hour traffic count at the intersections of Woodville Avenue and Pape Avenue and at Woodville Avenue and Donlands Avenue to determine the volume of traffic which uses Woodville Avenue, in particular during the morning and afternoon peak hours of the day. A summary of these data is presented in the following table:

Table 2 - Traffic Volumes on Woodville Avenue

 The above-noted traffic volumes are consistent with the local nature of this street and do not suggest a significant traffic infiltration concern. The average daily traffic volume of 1200 vehicles is well within the 1000 - 3000 vehicle range typical for a local residential street. In fact, the above-noted volumes would typically represent trips generated by local residents, William Burgess School or the East York Community Centre.

 Any traffic infiltration on Woodville Avenue would be highlighted by significant traffic volumes on selected turning movements at Pape Avenue and at Donlands Avenue. These volumes would be the northbound right turn volume at Pape Avenue and Woodville Avenue and the eastbound left turn volume at Donlands Avenue and Woodville Avenue. Conversely, we would expect significant traffic volumes on the northbound left turn at Donlands Avenue and Woodville Avenue and a corresponding volume for the westbound right turn at Pape Avenue and Woodville Avenue. The following table highlights these particular traffic movements.

 Table 3 - Selected Traffic Volumes on Woodville Avenue

A review of the northbound right-turn and westbound left-turn volumes at Pape Avenue and O'Connor Drive and at Donlands Avenue and O'Connor Drive indicates that there is significant turning activity at these two signalized intersections during all periods of the day. Staff have determined that the volume of westbound left turns is complemented by the volume of northbound right turns at both signalized intersections, especially during weekday peak periods. This pattern of travel indicates that non-resident traffic is using the arterial roads in this vicinity and not local roadways, such as Woodville Avenue. The following table identifies the actual volumes for the subject movements at each intersection:

Table 4 - Traffic Volumes at Pape Avenue/O'Connor Drive and Donlands Avenue/O'Connor Drive

 Furthermore, a count at the East York Community Centre driveway and at the William Burgess Public School driveways during the morning and afternoon peak hours indicates that the majority of motorists' origin and destination is Pape Avenue. Some traffic was locally generated and some traffic accessed these driveways from Pepler Avenue. In our opinion, the traffic activity generated by the Community Centre and the school is a primary contributing factor to residents' perception of a traffic problem on Woodville Avenue.

 The introduction of turn restrictions at Pape Avenue/Woodville Avenue and Donlands Avenue and Woodville Avenue would only serve to inconvenience local residents, parents picking up and dropping-off school children and people accessing the East York Community Centre. Turn restrictions would force motorists to find other ways to access Woodville Avenue via other local residential streets.

 Based on the prevailing traffic volumes, it is our opinion that traffic volumes on Woodville Avenue are concentrated around the school arrival/dismissal times and activities at the Community Centre and are within the range of typical traffic volumes for urban local streets in the East York District.

 (ii) The feasibility of installing speed humps or traffic calming

 The use of speed humps to control the speed of traffic is an accepted practice throughout the former City of Toronto. A comprehensive City-wide traffic calming policy has not been adopted by the new City Council. Since the former Borough of East York did not have a formal traffic calming policy, staff are applying guidelines adopted by the former City of Toronto Council in order to review the potential for traffic calming on Woodville Avenue. The prime elements of the criteria for the installation of speed humps are vehicle speeds and traffic volume. Other environmental factors are also considered such as road width and gradient.

 The results of a radar study, which was conducted during a typical daytime off-peak period, indicate that the 85^th percentile speed (the speed at which 85 per cent. Of motorists are travelling at or below) is 47 km/h for the eastbound and westbound approaches on Woodville Avenue. This speed is considered acceptable for a roadway having the operating characteristics of Woodville Avenue. The speed limit on Woodville Avenue is 40 km/hr.

 Based on the combination of the existing traffic volumes and vehicle speeds the criteria required to warrant the introduction of speed humps on Woodville Avenue is not satisfied.

 Other traffic calming measures were considered such as installing additional "Stop" sign controls along Woodville Avenue. We do not support this measure because our experience indicates that motorists tend to speed between "Stop" signs to makeup lost time. Furthermore, because additional "Stop" sign controls are unwarranted on Woodville Avenue, there may be an increase in occurrences of disobeyance (if additional controls were to be installed).

 (iii) Operational safety on Woodville Avenue

 A review of the Toronto Police Service collision records for the five-plus-year period ending May 31, 1998 disclosed that three collisions were reported on Woodville Avenue, between Pape Avenue and Donlands Avenue. None of these involved a pedestrian. One collision, which occurred at the intersection of Woodville Avenue and Pepler Avenue, involved a southbound right-turning motorist disobeying the "Stop" sign control and colliding with an eastbound right turning vehicle. The two other collisions involved parked vehicles.

 Based on this collision record, the safety record on Woodville Avenue, between Pape Avenue and Donlands Avenue is acceptable for an urban local roadway. There is no predominant pattern of collisions which requires the introduction of mitigating measures.

 (iv) School pick up and drop off activities

 Observations indicate that significant pickup and drop off activity occurs by parents to William Burgess Public School during morning and afternoon arrival/dismissal times on both sides of Woodville Avenue, across the frontage of the school. Vehicles parked on the south side of Woodville Avenue in the existing "No Stopping Anytime" zone. As many as 5 vehicles were parked at one time between Pepler Avenue and Rivercourt Boulevard. Generally speaking, while some vehicles blocked private driveways and a fire hydrant, they were not left unattended and the illegal parking which occurred was for a short duration. There were no significant negative impacts associated with this activity.

 The "Parent Safety Program" (PSP) is a community based program that addresses traffic-related safety problems at schools and encourages parents and school officials to cooperatively provide a safe school environment. It is a program which was started in Alberta and is now being evaluated in Ontario. The motto of the PSP is "Choose Safety Over Convenience". The program emulates an organised "Kiss and Ride" concept dealing with the traffic congestion hazards in the school area when parents pickup or drop off their children. The majority of traffic safety concerns result from the disregard for the safety of children, as some drivers choose convenience over safety.

 The PSP is a partnership of various groups concerned about school safety and may include parents, teachers, volunteers, staff of the local Transportation Department and the Police. The school principal and parents take joint ownership of the safety of the children.

 We would recommend that a PSP be considered by school officials and parents to assist in school pickup and drop off activities on Woodville Avenue. Our staff would be pleased to assist in this program. Representatives of the Toronto Police Service should also be invited to participate.

 (v) The operation of the "Stop" sign control on Woodville Avenue at Rivercourt Boulevard

 Observations were conducted at the "Stop" sign control on Woodville Avenue at Rivercourt Boulevard during the morning and afternoon peak periods. There are three pedestrian accesses to the William Burgess Public School grounds opposite Rivercourt Boulevard. Staff observed that this intersection is where the majority of crossings from the north to the south side of Woodville Avenue occurs to/from school.

 The results of our observations revealed that the majority of eastbound and westbound motorists on Woodville Avenue failed to come to a full stop. In light of the significant pedestrian crossings at this location, we would recommend that the Toronto Police Service step up their enforcement of the "Stop" sign control at this location.

(b) Traffic Regulations at Pepler Avenue and Woodville Avenue

 Pepler Avenue and Woodville Avenue are local residential streets. Woodville Avenue is regulated by a posted 40 km/h speed limit and Pepler Avenue is regulated by the unposted 50 km/h speed limit. William Burgess School and the East York Community Centre are accessed via Woodville Avenue in the vicinity of Pepler Avenue. A plan showing the study area is attached to this report.

 In the petition that was submitted, residents of Pepler Avenue were concerned that their street was being used by through traffic travelling from O'Connor Drive to Pape Avenue in order to bypass the traffic signals at O'Connor Drive and Pape Avenue. To ascertain the traffic volumes conducting this manoeuvre, Works and Emergency Services staff conducted a traffic study on a typical weekday during the p.m. peak period. Staff observed a total of 27 vehicles in this two-hour period that turned left from westbound O'Connor Drive, proceeded southbound on Pepler Avenue, and turned right onto Woodville Avenue to proceed to Pape Avenue. As a comparison, the most recent traffic count conducted at Pape Avenue and O'Connor Drive, on February 1, 1999, revealed 261 westbound vehicles turning left onto Pape Avenue at this signalized intersection during the p.m. peak period. As a result of this investigation, staff have concluded that the volume of traffic using Pepler and Woodville Avenues to circumvent the traffic signals at Pape Avenue and O'Connor Drive does not constitute a significant traffic infiltration concern at this time, and that the vast majority of traffic utilizes the signalized intersection. Therefore, no further action is recommended.

 Residents of Pepler Avenue also requested that all-way stop control be implemented at the intersection of Pepler Avenue and Woodville Avenue to reduce traffic speeds and allow pedestrians to safely cross Woodville Avenue. All-way stop control is recommended at intersections where the volume of traffic on the intersecting streets or the number of reported collisions occurring in the last 12 months at the intersection meet the required values of the all-way stop warrant. Staff conducted a traffic count at this intersection on a typical weekday to ascertain vehicular volumes. The traffic volumes resulted in the all-way stop warrant being 47 percent met. Furthermore, an analysis of reported collisions for the period June 1, 1997 to May 31, 1998 revealed no reported collisions at this location susceptible to correction by all-way stop control. The all-way stop warrant is illustrated in Appendix 'B'. Since the technical requirements for all-way stop control are not met, no further action is recommended at this time with respect to implementing all-way stop control at this location. It should also be noted that all-way stop control is already in place on Woodville Avenue at Rivercourt Avenue (82 metres east of Pepler Avenue) and at Wolverton Avenue.

 Conclusions:

 The volume of traffic on Woodville Avenue, between Pape Avenue and Donlands Avenue is within tolerable limits, of which some is locally generated. Options to mitigate the volume of non-resident traffic would have significant detrimental impacts at the signalized intersections on O'Connor Drive at Pape Avenue and at Donlands Avenue and on local routing patterns. While there may be intermittent occurrences of a speeding motorist, the 85^th percentile speed is acceptable. The installation of speed humps or other traffic calming measures are not warranted. A review of the collision history of Woodville Avenue did not reveal any pattern of accidents which require mitigation. School pickup and drop off operations could be improved if a strategy is developed by school officials and parents. "Stop" sign disobeyance occurs on Woodville Avenue at Rivercourt Boulevard and increased enforcement should result in a reduction of this offence.

 The investigations conducted by Works and Emergency Services staff regarding traffic infiltration on Pepler Avenue revealed a minimal number of motorists utilizing Pepler and Woodville Avenues to bypass the traffic signals at O'Connor Drive and Pape Avenue, and that the vast majority of motorists utilize the signalized intersection to turn onto Pape Avenue. Furthermore, traffic studies conducted at the intersection of Pepler Avenue and Woodville Avenue revealed that all-way stop control is not warranted. Therefore, no further action is recommended at this time with respect to traffic concerns at Pepler Avenue and Woodville Avenue.

 Contact Name and Telephone Number:

 Vince Suppa

Supervisor

416-397-5436

 Bryan Muir

Supervisor

416-397-4588

    Director

 VJS/BM

attach.

APPENDIX 'B'

 All-way Stop Warrant - Pepler Avenue at Woodville Avenue