Report to/Rapport au:

Transportation Committee

Comité des transports

and/et

Agriculture and Rural Affairs Committee

Comité de l'agriculture et des questions rurales

and Council / et au Conseil

24 September 2009/le 24 septembre 2009

Submitted by/Soumis par :

Steve Kanellakos, Deputy City Manager/Directeur municipal adjoint

City Operations/Opérations municipales

Contact Person/Personne ressource :

John Manconi, General Manager/Directeur général

Public Works/Services des travaux publics

(613) 580-2424 x 21110, john.manconi@ottawa.ca

City Wide/à l’èchelle de la ville

Ref N°: ACS2009-COS-PWS-0021

SUBJECT:	city of ottawa speed zoning policy
OBJET :	POLITIQUE DE LA VILLE D’OTTAWA SUR LES ZONES DE LIMITATION DE VITESSE

REPORT RECOMMENDATIONS

That the Transportation Committee and Agriculture and Rural Affairs Committee recommend that Council approve:

1. The Speed Zoning Policy for Urban and Rural Roads, including: the procedure for setting speed limits on, rural gravel roads, posting 40 km/h speed limits on local residential roads, and establishing school speed zones, as outlined in Attachment 1;

2. The process to review speed limits to expedite responses to speed-related inquiries, based on roadway classification, as defined in the Transportation Master Plan, and as outlined in this report;

3. That speed limit reviews not be undertaken on any road within a three-year time period unless there are major changes in traffic patterns along the roadway in question;

4. That the Public Works Department submit as part of the future operating budget process $100,000 to be added to the Sign Maintenance Budget as outlined in the report;

5. That the City request that the Province permit the City to set default speed limits other than 50 km/h on residential roadways;

6. That the City Request that the Province amend the Highway Traffic Act to allow the doubling of fines within a school zone;

7. That as part of the Site Plan Agreement process that currently requires developers to install regulatory and warning traffic signage, 40 km/h signs be included as applicable in new developments.

RECOMMANDATIONS DU RAPPORT

Que le Comité des transports et le Comité de l'agriculture et des affaires rurales recommandent au Conseil d'approuver :

1. la politique sur les zones de limite de vitesse pour les routes urbaines et rurales, comprenant notamment la procédure pour établir les limites de vitesse sur les chemins ruraux en gravier, pour afficher une limite de vitesse de 40 km/h dans les rues résidentielles locales et pour créer des zones scolaires de limitation de la vitesse, telle qu'elle est exposée dans la pièce 1;

2. le processus d'examen des limites de vitesse permettant de répondre rapidement aux demandes de renseignements à ce sujet d'après la classification des routes établie dans le Plan directeur des transports, tel qu'il est exposé dans le présent rapport;

3. l'interdiction de procéder, à intervalle de moins de trois ans, à une révision de la limite de vitesse dans une rue donnée, sauf s'il y a eu des changements majeurs des mouvements de circulation dans la rue en question;

4. la présentation par Travaux publics, dans le cadre de la préparation du futur budget de fonctionnement, d'une proposition d'augmenter de 100 000 $ le budget d'entretien des panneaux de signalisation, telle qu'elle est résumée dans le présent rapport;

5. une requête adressée à la Province demandant que la Ville soit autorisée à établir des limites implicites de vitesse autres que 50 km/h dans les rues résidentielles;

6. une requête adressée à la Province demandant que le Code de la route soit modifié afin de permettre de doubler le montant des amendes dans une zone scolaire;

7. la modification du processus de réglementation des plans d'implantation, qui impose actuellement aux promoteurs immobiliers l'obligation d'installer les panneaux routiers de signalisation et d'avertissement, de manière à permettre que des panneaux de limite de vitesse de 40 km/h soient installés, s'il y a lieu, dans les nouveaux projets d'aménagement.

EXECUTIVE SUMMARY

The City’s Speed Zoning Policy was first established over thirty years ago and requires updating to keep in step with best practices for establishing speed limits. The Policy will also, confirm speed zoning methodology, address residential 40 km/h speed limits, establish a community engagement process for setting speed limits on local residential roads, set speed limits on gravel roads, streamline the speed zoning process, implement school speed zones and empower the community by creating an “engagement” approach to setting speed zones.

The original policy sets out a comprehensive engineering criteria for determining the appropriate speed for all classes of roads and considers various physical (road geometry, medians, etc.) and human factors (pedestrian volumes, collision data, etc.). Current best practices for establishing speed limits utilize the 85^th percentile speed of the road, based upon the fact that generally the public acts in a safe and appropriate manner. The updated Speed Zoning policy will utilize this method of determining the appropriate speed of a roadway, while retaining the full engineering criteria for complex locations.

Many local residential roads are not signed within the community and the Highway Traffic Act regulates that 50 km/h is the default speed limit and any variation of this requires signing. The City has received numerous requests to implement a 40 km/h speed zone on local residential roads. The Public Works Department recognizes that there are often other factors related to driver and community perception in a residential environment where a 40 km/h limit makes sense. The revised Speed Zoning Policy has a process similar to the one used for parking regulation requests that engages the whole community. Within a residential neighbourhood, the request to change the speed limit on local roads will affect all residents of the street and therefore, it is important to determine if there is a consensus among residents. Where 75% of residents agree with the speed limit change, Public Works will change the speed limit on the local road. For collector roads, it is proposed that the 40 km/h residential speed limit warrant, approved by Council in 2003, be applied to determine the appropriate speed limit. On major collector and arterial roadways, the 85^th percentile operating speed will be used as a basis to determine speed limits. It is also recommended that speed limit reviews on any roadway will not be undertaken within a three-year time period unless there are major changes in traffic patterns and development along the roadway in question.

It is widely recognized that motorists must be more diligent around schools, especially on busy arterial and collector roads. A new School Speed Zone program is included in the updated Speed Zoning Policy, including criteria for implementing school speed zone signage and in some cases flashing beacons.

Speed limits are not posted on many collector and gravel roads in the rural area and the default speed limit is governed by the Highway Traffic Act. Most of these roads are lightly travelled and self-regulating and do not require signing. Public Works is proposing to review speed limits on these roads on a case by case basis or where there are other safety concerns present (i.e.: collision data suggests there is a problem). The Speed Zoning Policy includes a process for reviewing gravel roads starting with the 85^th percentile criteria above and considering the unique nature that gravel driving surface presents.

Financial Implications:

Funds are in place, within the current signing budget, to cover the cost of implementing a reasonable number of speed limit changes each year, when those changes are substantiated utilizing the criteria outlined in the Speed Zoning Policy. Should the number of requests achieving resident consensus exceed the Department’s expectations (installing more than 200 signs in any given year – approximate cost is $50,000), a budget pressure will be identified during regular budget deliberations.

Funds are in place to install a limited number of school speed zones each year (approximately 5 locations) without flashing beacons within the current signing budget. However, the demand for implementing school speed zones will most likely be higher than this amount and some locations will need to be supplemented with flashing beacons. Therefore, additional funds are required to address school speed zones speed limits. It is recommended that the base signing budget be increased by $100,000 in the 2011 Operating Budget. This would allow for the installation of approximately 20 additional school speed zones. Additionally, for those locations where a school speed zone review results in the requirement for flashing beacons, this additional funding could result in 3 installations per year.

The operating impact of the installation of new signs is estimated at $4,400 per year and will be requested in the year following the installation of the signs.

Public Consultation/Input:

Councillors have been consulted regarding The Speed Zoning Policy and Rural Councillors were also consulted regarding establishing speed limits on gravel roadways. Also, both Federal and Provincial transportation organizations and various North American municipalities have provided comments. The Ottawa Police, Legal Services and the Ottawa School Boards were also asked to provide comments. All comments received from stakeholders were supportive of the Speed Zoning Policy.

BACKGROUND

At the 18 October 2006 meeting, Transportation Committee approved the following motion:

“That Staff be directed to bring forward, in the new year, a City of Ottawa Speed Limit Policy, which would build on the 40 kilometres per hour interim speed zone warrants (approved by Council in October 2003), in conjunction with the previously approved Regional Municipality of Ottawa-Carleton (R.M.O.C.) Speed Limit Policy. This policy would set out the methodology to determine appropriate speed limits on all City roadways.”

In addition, the Agriculture and Rural Affairs Committee at the meeting of 12 June 2008, approved the following motion:

”That Traffic and Parking Operations staff be directed to review the criteria for designating reduced speed zones in school zones in rural areas.”

Prior to amalgamation in 2001, safe and appropriate speed limits on the arterial road network were determined using the criteria and methodology set forth in the Speed Zoning Policy for Urban and Rural Roads, approved in 1975 by Council of the former Regional Municipality of Ottawa-Carleton. Since then, no significant changes or amendments have since been made resulting in an operating policy that appeared out of date and not always in step with current trends, requirements, or local community needs. Also, there was no formal process for community engagement.

Updating the City’s Speed Zoning Policy involved the following five components:

· A process for implementing residential 40 km/h speed limits (approved by City Council in October, 2003), including a formal process to involve local communities;

· Retaining speed warrants for some cases (minor collector roads);

· Revised process to review speed limits and timelines to expedite responses to speed-related inquiries;

· A School Speed Zone program, including the background associated with the Adult School Crossing Guard Program; and

· A procedure for setting appropriate speed limits on rural road sections with gravelled surfaces.

DISCUSSION

Generally, speed zoning is based upon several concepts deeply rooted in our system of government and law including that:

· Driving behaviour is an extension of social attitude, and the majority of drivers respond in a safe and reasonable manner as demonstrated by their consistently favourable driving records;

· The normally careful and competent actions of a reasonable person should be considered legal;

· Laws are established for the protection of the public and the regulation of unreasonable behaviour on the part of individuals; and,

· Laws cannot be effectively enforced without the consent and voluntary compliance of the public majority.

Public acceptance of these concepts is normally instinctive. However, there are also widely held misconceptions regarding speed zoning policy, such as:

· Speed limit signs will slow the speed of traffic;

· Speed limit signs will decrease the collision rate and increase safety;

· Raising a posted speed limit will cause an increase in the speed of traffic; and,

· Any posted speed limit must be safer than an un-posted speed limit, regardless of the traffic and prevailing roadway conditions.

All technical details contained within the revised Policy are based on several sources including extensive research conducted by the United States Transportation Research Board (USTRB) (Special Report 254 - Managing Speed - Review of Current Practice for Setting and Enforcing Speed Limits), but also augmented by the currently accepted ‘best practices’ used in North American, European, and Australian jurisdictions. Both the USTRB and accepted best practices continually confirm that speed limits are most appropriately based on 85^th percentile operating speeds.

Requests to lower posted speeds are most often made in the belief than any reduction in the speed limit will automatically result in a corresponding decrease in the speed of traffic, and thereby, an increase in safety for residents. Although the majority of speed-related complaints originate in residential communities, some involve the collector and arterial roadway system.

The former Municipalities maintained differing positions in determining speed limits on roadways under their jurisdiction to the extent that the Cities of Cumberland, Gloucester, Kanata, and Nepean allowed for 40 km/h speed limits regardless of roadway classification. This disparity in the approach to established posted speed limits, notably on residential roadways, resulted in a perceived inequity in the treatment of neighbourhoods within the amalgamated City of Ottawa and a clear lack of direction for staff on appropriate procedures for reviewing and recommending speed limits on residential streets.

Several municipalities in Ontario have considered and signed lower speed limits on their roadways. In these municipalities, 40 km/h speed limits are posted in school zones, on residential streets, and on minor collectors near schools. The City of Toronto and Hamilton use a warrant criteria for posting 40 km/h speed limits, which is similar to the warrant criteria approved by City Council in 2003, as described in Attachment 2.

The matter of a default speed limit on City of Ottawa roadways without the installation of speed limit signing is addressed by the Province of Ontario Highway Traffic Act, Section 128 (1); ‘No person shall drive a motor vehicle at a rate of speed greater than, (a) 50 kilometres per hour on a highway within a local municipality or within a built-up area;’

Section (2) states that:  ‘The council of a municipality may, for motor vehicles driven on a highway or portion of a highway under its jurisdiction, by by-law prescribe a rate of speed different from the rate set out in subsection (1) that is not greater than 100 kilometres per hour and may prescribe different rates of speed for different times of day. 2006, c. 32, Sched. D, s. 4 (3).’

To implement a speed limit other than outlined in Section (1), (for example, 40 km/h) regulatory speed limit signing must be installed at a minimum spacing of 300 m (Ontario Traffic Manual).

Staff reviewed various options/scenarios to address the issue of 40 km/h on residential streets. They included:

1. Petitioning the Province to amend the Highway Traffic Act to allow municipalities to set default speed limits on their roadways;

2. Installing ‘gateway’ 40 km/h speed limit signing to neighbourhoods;

3. Applying the Council approved ‘Residential 40 km/h Warrant’ on a case by case basis – i.e. status quo;

4. Implementing 40 km/h speed limits on neighbourhood residential streets with the consensus of 75 % of the residents of said street;

5. Installing 40 km/h signs on all residential streets;

6. Provide 40 km/h speed limits on all collector roadways only; and

7. Developers installing 40 km/h signs all new residential streets prior to handing over ownership of street to City.

Staff comments, describe the effect on enforcement and initial costs and are described in Attachment 3.

In order to obtain information on how other municipalities are dealing with 40 km/hr speed limits on residential streets as well as to aid in completing the City of Ottawa’s speed limit policy review, various municipalities throughout Ontario and Canada were asked specific questions as summarized in the following table along with results (25 municipalities responded to this survey but did not necessarily respond to all questions):

Question	Yes	No
Has your municipality considered a default 40 km/h speed limit without signing?	8	17
If your Province/Territory does not support an unsigned default 40 km/h speed limit, have you considered approaching the Province/Territory?	4	21
Does your municipality support reduced speed limits within neighbourhoods with the installation of 40 km/h speed limit signs on entrance roadways only?	6	19
Is your municipality receiving many requests for reducing speed limits to 40 km/h on residential streets from Councillors or residents? If so, how many on average would your department receive/month?	14 Number of requests range between 1-7.	5

Based on the above-mentioned information, staff is recommending the following guideline be used to determine the speed limit for each class of roadway, as defined in the Transportation Master Plan, within the City of Ottawa.

1. Local Roads - 40 km/h Speed Limit

Within a residential neighbourhood, the request to change the speed limit will affect all residents of the street and therefore, it is important to determine if there is a consensus among residents. The Public Works Department recognizes that there are often other factors related to driver and community perception in a residential environment where a 40 km/h limit makes sense. Setting a lower speed limit has often had a limited impact on traffic flow, as these types of roads do not see large volumes of traffic.

To ensure a fair and equitable response to the numerous speed related inquires received by the Department within residential communities, on local streets, it is proposed that any review of a speed limit be based not on individual requests, but rather by petition proving consensus that 75% of residents support a change in the speed limit on the roadway in question. Currently, this method has proven successful to assess parking regulations on City of Ottawa roadways. Where consensus is achieved, the Department will proceed to lowering the speed limit to 40 km/h.

2. Minor Collector Roads – 40 km/h Speed Limit

· In October 2003, the Transportation Committee and Council approved a warrant for posting 40 km/h speed limits on residential roadways that meet the criteria. This warrant is included in the attached Speed Zoning Policy as attached. For minor collector roads, which are distinct from local residential roads.

The modified residential 40 km/h speed limit warrant has proven to be a technically sound methodology used with success in establishing posted 40 km/h speed limits. The warrant takes into account various criteria, i.e. schools or playgrounds. It is recommended that the warrant be retained to determine if 40 km/h is an appropriate speed limit for the minor collector roadway being reviewed.

3. Major Collector and Arterial Roads

Within the City, all major collector and arterial roads are currently signed and the speed limit well established (with the exception of non-arterial rural and gravel roads as outlined below). The City does not receive many requests to implement a speed review on these types of roadways.

To determine the appropriate speed limit on a major collector and arterial road, the 85^th percentile operating speed will be used as a starting point. The review first determines if anything has changed in the immediate area, such as new development in the area. As per the policy if there are no other mitigating factors, the speed survey confirms the posted speed limit and the ward councillor has been consulted, then generally there will be no further action. Should the ward councillor not agree with the staff recommendation, staff would prepare a report for consideration by Transportation Committee and Council.

Funds are in place, within the current signing budget, to cover the cost of implementing a reasonable number of speed limit changes each years, when those changes are substantiated utilizing the criteria outlined in the Speed Zoning Policy. Given that this is a new policy and under the new policy the demand for speed limit changes are not known, the Department is proposing to proceed without additional funds/resources and undergo an evaluation phase. Should the number of requests achieving resident’s consensus exceed the Department’s expectations (installing more than 200 signs in any given year – approximate cost is $50,000), a budget pressure will be identified during regular budget deliberations.

Additionally, it is recommended that further speed limit reviews will not be undertaken within a three-year time period unless there are major changes in traffic patterns along the roadway in question. If however there are new mitigating factors or the speed survey does not confirm the posted speed limit, then under the policy a detailed study would be conducted.

There are other measures that the Department uses to control speed on problem roads, including:

l Radar trailers for arterial and major collector roads showing the actual speed compared to the speed limit to remind drivers to slow down;

l Smaller speed boards for residential neighbourhoods used in the same manner as the radar trailers; and,

l Education campaigns such as Slow Down/Ralentissez and Speeding Cost You Campaign.

These education measures, coupled with enforcement programs, are very effective in controlling speed for roads where a lower speed limit cannot be implemented but speeding is still a concern.

4. Default Speed Limit

As a result of requests from Councillors and the public to have a default speed limit of 40 km/h on residential streets and the fact that this can only occur if the province changes the legislation in the Highway Traffic Act, staff have included a recommendation requesting that a resolution from City Council be sent to the Province requesting that the Highway Traffic Act be revised to allow municipalities to set their own default speed limits on residential streets. This would allow the City to erect boundary signage and for non-posted local residential roads and would be a much more cost effective option.

Finally, staff routinely requires developers to install a wide range of regulatory and warning signs as part of the Site Plan Agreement process, prior to roads being assumed by the City. As part of this process, 40 km/h signs will be included (as applicable) in new developments.

The flow chart found in Attachment 4 illustrates the process City staff will follow to review a speed limit related inquiry and the timelines associated with these reviews.

School Speed Zone Program

There are two programs related to traffic safety and schools, the School Area program and the School Speed Zone program. The School Area program consists of warning signs installed in general proximity to a school and can be considered primarily for roadways near elementary and middle schools, where there is a possibility of children entering the roadway. Currently, all primary, middle schools and most high schools within the City have School Area warning signage.

The School Speed Zone program consists of warning signs, a reduced speed limit and in some instances, flashing beacons and is applicable to elementary, middle and high schools. The Transportation Association of Canada (TAC), of which the City of Ottawa is a sponsor, prepared “School and Playground Areas and Zones: Guidelines for Application and Implementation” in October, 2006.

The intent of these guidelines is to “provide engineers and practitioners across Canada with a tool to help them decide where school and playground areas and zones may be considered, and to prioritise the locations which are most in need of such areas and zones. Due to variances in local practices, there is a need for a set of uniform guidelines towards the establishment of school and playground areas and zones and the application of traffic control devices in such areas and zones”.

The factors to be considered in the establishment of School Zones and Areas are:

· School type;

· Road classification;

· Fencing characteristics;

· Property line separation;

· Location of school entrance; and,

· Location of sidewalks.

In some instances there are other mitigating factors present that are not contemplated by the TAC guidelines. These are taken into account on a case-by-case basis, in consultation with the school principal, parent advisory council and student representatives.

Several school speed zone pilot projects are currently underway and have been widely acclaimed by parent advisory council, school officials and Community associations. Preliminary surveys indicate a substantial reduction in vehicle speeds have been attained at St. Mark’s High School on Mitch Owens Road during the times students are adjacent to the roadway. St. Mark’s High School is a good example of mitigating circumstances not anticipated by the TAC guideline. There is a high pedestrian volume between the school (south side of Mitch Owens) and a fast food establishment (north side of Mitch Owens). As a result, a school zone is in effect during the morning, lunch and the afternoon periods.

The improved school area signing, at both urban and rural schools, has resulted in a higher visibility of school zones for motorists by clearly delineating where a school zone begins, where it ends and the time periods motorists must reduce their speed to ensure the safety of all road users within the designated zone. As a result of these pilot projects, staff are recommending that at schools located on rural arterial roadways, locations meeting the warrants for the school speed zones, be supplemented by flashing beacons to provide higher visibility on these high speed roadways. It is also recommended that for any roadway, the reduction of the speed limit, within a school speed zone, shall never be greater than 20 km/h, in accordance with the Highway Traffic Act. The school area and school zone worksheet is shown in Attachment 5 and an illustration of the signing of a school speed zone is shown in Attachment 6.

Funds are in place to install a limited number of warranted school speed zones each year (approximately 5 locations) without flashing beacons within the current signing budget. However, the demand for implementing school speed zones will most likely be higher than this amount and some locations will need to be supplemented with flashing beacons. Therefore, additional funds are required to address school speed zones speed limits. It is recommended that the base signing budget be increased in the amount of $100,000 in the 2011 Operating Budget. This would allow 20 school speed zones to be installed, along with three locations with flashing beacons per year. Only schools that meet the warrants set out in the TAC school speed zone guidelines or where there are other mitigating factors present would be eligible. Signing all schools would be costly (approximately $1,000,000 for all 330 schools in the City of Ottawa) and would potentially create a situation where the effectiveness of the signs would be lost. Flashing beacons shall supplement school zones on high-speed rural roadways (such as Mitch Owens or Bank St) or at locations that meet the warrants as defined in the guidelines. Installing flashing beacons at all schools is not recommended, as again this would be very costly (approximately $11,000,000).

Finally, it is recommended that a resolution to the Ministry of Transportation of Ontario to amend the Highway Traffic Act to allow for the doubling of fines within school speed zones (currently fines are doubled within construction zones and community safety zones).

Speed Limits on Rural Roadways Other Than Arterials

In the Province of Ontario, since the 1960’s or before, if a rural roadway had no speed limit signs posted, the default speed limit was governed by the Highway Traffic Act. Municipalities are permitted to change speed limits, however, that new limit must be both posted in the field, and incorporated into a local by-law.

Currently, many gravel roads and non-arterial roadways in the rural area are not signed and therefore default to the limit prescribed in the Highway Traffic Act. All arterial roads in the rural area have posted limits.

Past practice has been that the Public Works Department conducts a speed study upon request from the public, Councillor or when there are other safety related factors present, i.e. collision statistics indicate a problem. The Public Works Department intends to continue the practice of initiating studies primarily on a request basis.

Traffic volumes, in rural areas, are typically quite low when compared to the volume of traffic on urban roadways and in addition, drivers’ speeds are essentially self-controlling on gravel, rough, or narrow paved roads in relatively poor condition, especially when limits are not posted. Gravel roadways, in particular, present a special challenge when deciding a level of speed limit to post as the conditions of these roads can vary dramatically. However, as with other roadways, the recommended speed limit reflects driving under ideal road, weather and traffic conditions.

It is obvious that a narrow, winding, gravel roadway simply cannot sustain the high-speed traffic of a smooth, paved, wide arterial urban road (i.e. 80 km/h). As the population increases in the rural areas of the City of Ottawa there are increasing requests to reduce the speed limit in an effort to reflect driving conditions and the ‘residential’ nature of the new neighbourhoods.

Similar problems exist for narrow paved roadways across the rural areas of the City. Although the road surface can be a better condition than on gravel roads, the same concerns are expressed but now include comments regarding pedestrian activity as shoulders are too narrow on which to walk or too rough for strollers and bicycles, and if the speed limit were reduced, traffic would become slower, therefore improving the safety of non-vehicle users of the road.

The Speed Zoning Policy recommends that the speed limit on gravel roadways will be reviewed on a case-by-case basis. Should there be a sufficient number of vehicles (typically a minimum of 30 vehicles per direction within a two-hour time period), a spot speed survey will be undertaken to confirm the average speed and 85^th percentile speed of traffic to provide a good starting point to assess the level of the speed limit. Experience indicates the minimal study has proven successful in providing a previously unsigned roadway with a speed limit that the majority of drivers will observe. In addition to the speed survey, a thorough review of warning and regulatory signing will be undertaken. The upgraded signing provides drivers, both local and those unfamiliar with the road with a clear indication of the driving environment. Additionally, with police enforcement a posted speed limit will successfully address those drivers who choose to disregard the law and travel at excessive and potentially dangerous speeds.

The Speed Zoning Policy has a mechanism to review speed limits on rural paved roads as the summary tables used to determine the appropriate speed limit on any given roadway take into consideration but are not limited to, 85^th percentile speed, pavement width, shoulder width and degree of pedestrian activity, community, Ward Councillor and police input in recommending an appropriate and safe speed limit. Accordingly, this method will continue to be used.

Funds are in place, within the current signing budget, to cover the cost of implementing a reasonable number of speed limit changes each year, when those changes are substantiated utilizing the criteria outlined in the Speed Zoning Policy.

CONSULTATION

As part of the update of the Speed Zoning Policy for the City of Ottawa, staff has consulted with the City Councillors, City Legal Services, Ottawa Police Service, Transportation Association of Canada, Ministry of Transportation of Ontario, other Ontario and Canadian Municipalities, School Boards, and the trucking industry. All comments received were supportive of the Speed Zoning Policy.

In June 2009, City staff met with the principal of St. Mary’s School, Ottawa-Catholic School Board, residents of Greely and the Construction Association to review the proposed School Speed Zone guidelines being recommended. All attendees agreed with the proposed guidelines. As well, staff reviewed the warrants for the installation of a school speed zone on Bank Street in the vicinity of St. Mary’s school and determined that a school speed zone was indeed warranted and will also be supplemented with flashing beacons. The installation was completed prior to the start of the 2009/2010 school year.

In July 2009, staff sent a copy of the update on the setting of speed limits on rural paved and gravel roadways to the four rural Councillors for their review and comments. In addition, the four rural Councillors where briefed on the report.

LEGAL/RISK MANAGEMENT IMPLICATIONS:

There are no legal/risk management impediments to the implementation of recommendations 1 to 4, and the second part of recommendation 5. However, with respect to the first part of recommendation # 5, while there are no legal impediments to petitioning the Province for a "default speed limit other than 50 km/h", there may be legal implications were the Province to allow municipalities to set default speed limits other than 50 km/h. Were the Province to agree to a default speed limit for municipalities (that is, no signage), and were the City to implement a 40 km/h default speed limit, without signage, there would be some confusion between the HTA default speed of 50 km/h (without signage) and the City default speed of 40 km/h (without signage). While the City By-law would provide for the default speed limit of 40 km/h, and an offence would therefore in technical terms be enforceable, the Courts may pick up on the ambiguity between the Province wide default limit of 50 km/h and the City of Ottawa default limit of 40 km/h, both without signage, and may dismiss charges. While drivers are presumed to "know the law", as it is expressed in the City's Traffic and Parking By-law, in the absence of any signage there will be confusion between the provisions of the HTA and the City By-law.

The City may try to overcome this confusion between the two default speeds by posting "perimeter" or "gateway" signs but City residents and visitors would not necessarily see these, and moreover, it seems that residents are not generally aware of unsigned default speed limits.

FINANCIAL IMPLICATIONS

With respect to Speed Zoning no additional budget authority is being requested.

For School Speed Zones beginning in 2011, Public Works would be directed to submit as part of the 2011 Draft Operating Budget for Council consideration that $100,000 be added to the Sign Maintenance Budget to allow for the installation of approximately 20 additional school speed zones and supplementing three locations with flashing beacons per year.

In subsequent years following the prior year’s installation of additional school speed zones, an annual budget pressure of $4,400 per year would be added as a budget pressure for maintenance requirements.

SUPPORTING DOCUMENTATION

Attachment 1 Speed Zoning Policy for Urban and Rural Roads

Attachment 2 40 km/h Residential Warrants (Immediately follows the report)

Attachment 3 Options to implement 40 km/h speed limit (Immediately follows the report)

Attachment 4 Process to Review Speed Limits and General Timelines to Implement (Immediately follows the report)

Attachment 5 School Area and School Zone Worksheet (Immediately follows the report)

Attachment 6 Illustration of the signing of a school speed zone. (Immediately follows the report)

DISPOSITION

Upon Council approving the recommendations contained in this report, action will be taken to assess requests for speed limit changes through the application of the revised City of Ottawa Speed Zoning Policy.

Attachment 2

40 KM/H RESIDENTAL WARRANTS

In 2003, Council of the City of Ottawa approved the following 40 km/h posted maximum speed limit warrants which may be implemented on any street where one or more of the conditions shown in Warrant A are met. In the case of streets 10.5 metres or more in width, Warrant B must also be considered.

Warrant A: (One or more of the following)

1. Elementary or junior high school abuts the road.

2. Parkland abuts the road that is contiguous to and used to gain access to an elementary or junior high school.

3. No sidewalk on either side of the road or a major portion of the road.

4. The sidewalk is immediately adjacent to and not separated from the flow of motor vehicles by long-term parking (3 hours) or bike lanes, and where the travelled portion of the road width is less than 5.7 metres for two-way operation, or less than 4.0 metres for one-way operation.

5. Two or more locations of concern where there are grades greater than 5% and/or safe speed on curves is less than 50 km/h.

6. Lack of sufficient distance to stop safely at two or more locations when travelling at 50 km/h.

7. The number of speed related collisions on local streets equals 3 or more over three years.

8. Where long-term parking (3 hours) is permitted on one or both sides, and the remaining travelled portion of the road is less than 5.7 metres for two-way operations, or 4.0 for one-way operation.

9. A licensed childcare facility or private school abuts the road.

Note: In the case of Warrant A (1) or A (2), the 40 km/h maximum speed limit must extend no less than 150 m beyond the boundary of school property and/or contiguous parkland

Warrant B: (Wide Roads)

1. A 40 km/h maximum speed limit may only be implemented on streets with total pavement width equal to or more than 10.5 metres, if the 85^th percentile speed is equal to or less than 50 km/h

Note: Speed limit reductions to 40 km/h on wide roads have negligible impact and in these cases, other measures should be considered to influence driver behaviour to reduce speed, such as geometric changes to the road itself.
Attachment 3

Options to Implement 40 km/h Speed Limits

#	Option	Staff Comments	Effect on Enforcement	Initial Cost
1	Request province to amend the Highway Traffic Act to permit 40 km/h speed limits without the need for speed limit signing	· Less visual sign pollution · All existing 40 km/h signs could be removed, improving the visual landscape · Increased speed limit signing on previously unsigned 50 km/h collectors and arterials · All rural roads may require speed limit signing · Motorist confusion regarding speed limits · Inconsistent with other communities in Ontario · Continual education costs · Majority of municipalities do not support this option.	· Increased demand on police · Police enforcement requires posted speed limit on every street to successfully convict	To sign 50 km/h speed limit signing on roadway: $250,000 for rural roads $150,000 for urban collectors and arterials Savings of approximately $20,000 per year as no longer the requirement to install 40 km/h signage
2	Install 40 km/h speed limits on the entrance to communities (Gateway Signing)	· Fewer speed limits signs than in Option 5 · Motorist confusion regarding speed limits · Continual education costs · May be difficult to define community boundaries	· Increased demand on police · Police enforcement requires posted speed limit signage with appropriate spacing on every street to successfully convict	$200 - $500 per community entrance, costs depends on size of sign
3	Maintain Status quo – Apply Council approved “Residential 40 km/h Warrant”	· Speed limits more appropriate for roadway classification · Improved visual landscape · Public acceptance of speed limits when the limit reflects roadway geometry, adjacent land development, and pedestrian, cycling activity.	· Minimal enforcement as roadway speeds will mirror speed limit resulting in fewer complaints from the public	$500 to $2000 per roadway (based on roadway length and number of signs required)

4	Implement 40 km/h on neighbourhood residential streets with consensus of 75% of the residents of the street.	· Provides for consultation with local neighbourhood · Ensures majority of residents of street endorses speed limit · Within existing budget, would have to cap number of requests to $50,000 per year · Increased maintenance costs	· Increased demand on police for enforcement resulting from increased complaints from the public	$500 to $2000 per roadway (based on roadway length and number of signs required). Ability to fund signage up to $50,000 per year
5	Implement 40 km/h speed limit signing on all roadways	· Substantial increase in the number of speed limit signs in the urban environment · Substantial cost · All roadways will require speed limit signing including all residential roads, formerly unsigned collectors and all rural roads · Increased maintenance costs · Increase in the number of speeding complaints from residents	· Increased demand on police for enforcement resulting from increased complaints from the public · Reduced police presence on major roadways where speeding is an issue	$5 million for urban roads plus maintenance costs over 20 year cycle.
6	Provide 40 km/h speed limits signs on all collector roadways only	· Fewer speed limits signs than in Option 5 · 40 km/h speed limit may not be appropriate for collector roadways · Motorists confusion regarding speed limits · Residential roadways would have default to 50 km/h but appear to be 40 km/h	· Increased demand on police · Police enforcement requires posted speed limit on every roadway to successfully convict	$500,000 for collector roadways
7	Developers install 40 km/h signage on residential streets prior to handing over roadway to City	· Additional cost for development industry · Substantial increase in the number of speed limit signs in the neighbourhood environment · Increased maintenance costs · Increase in the number of speeding complaints from residents	· Increased demand on police for enforcement resulting from increased complaints from the public	No cost to City – Costs are borne by Developer.

Process to Review Speed Limits and

General Timelines to Implement

Attachment 5

School Area and School Zone Worksheet

Attachment 6

Illustration of the signing of a school speed zone