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Street Development Plan
Adopted: February 9, 2004
Under the provisions of Section 16.1 off the Municipal Government Act, R.S.A. 2000, c. M-26, the Town of Lacombe, as a Town, does not have title to the streets within its corporate boundaries. However, under the provisions of section 18 of the Act, the Town, subject to any other Act, has the power of "direction, control and management of all roads with the municipality."
In fulfillment of its role for the ongoing planning for the development of the street network for the Town, Council has directed the preparation of a series of traffic studies with the intent of developing an overall, long term street development plan for the community and identifying the actions that should be taken in the short and long term time frames to implement this network. These studies include:
Council has reviewed the contents of these studies and the recommendations, plans, policy requirements and actions arising from them. Those aspects of the studies that Council was prepared to consider further were presented to the public for comment and, after consideration of the public input, Council now adopts the provisions of this plan as the direction for the development of the streets of the Town.
The Street Development Plan is a non-statutory plan and with the purpose of bringing all aspects of street planning and development together in a single document. As such it is intended to be aligned with the Strategic and Corporate Plans of the Town and consistent the operational, financial and capital plans and policies of the Town. However, as street network planning is integral with land use planning, the statutory land use plans including the Municipal Development Plan, Intermunicipal Development Plan and various area structure plans and the non-statutory outline plans also contribute help to defining the street network plan and the policies related to its development. While this plan and the statutory land use plans are intended to be mutually reflective, the statutory plans and the out line plans take precedence where there are inconsistencies.
The information, data, analysis, options and justification relating to the items within this plan and set out in detail in the studies listed above. It is not the intent, at least in this first version, to include all of this material in the text of this Plan. As such the text of the plan is "economic" and contains simply the statements of action intended. For the items within the Plan, links to the studies have been included where meaningful.
The Street Development Plan will be reviewed annually in conjunction with the operation, capital and financial plans. In every third year, the review the will be more substantial and will include an updating of traffic volumes on major streets through physical counts.
The street network plan upon which this plan is based is that which is adopted as part of the Municipal Development Plan and shown as Map 1. This street network is that which is anticipated to be required to serve a population of approximately 20,000 and which is contained within the Town's present corporate boundaries in a land use pattern identified in Map 2 of the Municipal Development Plan.
The streets of the Town are designated according the following primary classifications:
- Arterial - above 10,000 vehicles per day (vpd)
- Primary Collector - 5,000 to 10,000 vpd
- Collector - 1,000 - 5,000 vpd
- Local - up to 1,000 vpd
Sub-classifications and detailed design parameters are set out in Table 3.1
The designated classification of the present and future streets of the Town are out in Map 1. The streets for which the designated classification has changed from earlier plans and policies are identified in Table 3.2.
To accommodate the growth in Town generated traffic as well as through traffic, the following streets are expected to experience sufficient traffic volumes to warrant expansion to four lanes:
- Highway 12 (50th Avenue) from east boundary to west boundary
- Highway 2A from north boundary to south boundary
- West Side Road north of Highway 12
- C&E Trail from Woodland Drive to 63rd Avenue/Elizabeth Lake Drive
- Wolf Creek Drive between Highway 2A and 46th Avenue
Two of the major arterial roads of the Town, Highway 12 and Highway 2A, are designated as primary highways under the Public Highways Development Act, R.S.A. 2000, c. P-38 and, at least as long as the type of municipality of Lacombe remains a town, are under the jurisdiction of Government of Alberta through the ministry of Alberta Transportation. In recognition of the dual role of the primary highways as a component of the primary provincial highway system and a major local road for the Town, Alberta Transportation has participated in and shared the funding of the preparation of the Highway 2A Study and that part of the 2002 Traffic Study that related to the Highway 12 and 2A.
The planning and scheduling of work on the primary highways will necessarily be dependent on the Provincial Government. As well, the Town will be responsible for certain components of these projects that are of local benefit and will be responsible for any work on parallel service roads and intersections. It will be important to work with Alberta Transportation in the planning and construction of these projects and the Town will advocate with the Government long in advance of planned upgrading and construction to ensure that timely funding is available. As a means of facilitating construction on the Town's timing and better coordinating related Town work, the Town will consider undertaking the administration of the entire construction project provided that they Province gives a commitment to fund the work within six months of incurring the expenditure.
As a long term solution to the ongoing development of primary highways in the Town, Council will investigate assuming control and jurisdiction of the primary highways from Alberta Transportation provided the financial arrangements are satisfactory.
Specifically for the primary highways:
4.1 Highway 12 (50th Avenue)
Highway 12, also referred to as 50th Avenue in the Town's Civic Addressing System and Barnett Avenue historically, traverses the Town from the east boundary to the west boundary where it interchanges with Highway 2. It forms the only east/west arterial road for the Town. It also passes directly through the downtown area.
The increasing traffic volumes along Highway 12 result in rising congestion and alternative routes, over which traffic can be diverted from the present alignment, were examined in detail. Much of the traffic on Highway 12 is local traffic. Even truck traffic was found to be largely local in nature or would have business in the Town while passing through. As such, alternative routes or bypasses can not be located at a distance too great from the present route. Unfortunately the historical development pattern of the Town and existence of the railway combine to eliminate any practical alternatives that would cause a meaningful reduction in volume along the present Highway 12.
Given the lack of alternatives for diverting traffic away from the highway, this street will need to be upgraded to ensure that it continues to be able to move the increased traffic volumes generated by continually growing community.
Major improvements include:
4.1.1 Additional Driving Lanes
By the 20,000 population horizon, it is expected that Highway 12 will be a continuous four lane urban highway from Highway 2 in the west to just east of Wolf Creek Drive. The conversion of Highway 12 to four lanes will have significant impact on properties that front on the street, especially within the downtown area.
The conversion to four lanes would be considered once traffic volumes exceed 10,000 vpd. Present traffic volume on Highway 12 is 7,000 to 8,000 vpd. Monitoring of traffic volumes and congestion issues will be undertaken as part of the three year review process. Where possible, a phased or partial implementation will be considered to alleviate just those locations and directions where congestion and traffic volume warrant a second lane.
Highway 12 currently provides almost 200 on street parking spaces. Of these, 44 spaces are located between Highway 2A and 53rd Street and can be considered as a supply of parking for the downtown area. The prospective loss of parking is a matter of significant concern to downtown business operators. Any parking that is expected to be lost along Highway 12 as a result of creating additional driving lanes, will be replaced in kind at locations that remain convenient for downtown customers and will be in place prior to the removal of existing on street parking spaces.
4.1.2 Golf Course Access
Because of the speed limit and the sight lines on that section of Highway 12 west from 63rd Street, the accesses to the Lacombe Golf and Country Club, 4 individual residences and a business warrant improvement.
The existing access to Highway 12 east golf course access will remain as an entrance to the facility but turning movements will be limited to prohibit eastbound left turns into this access. Concurrent with this improvement, the existing exit would be relocated to the west so as to be placed at the crest of the rise on Highway 12. This access would then be configured ( Figure 4-6) to allow all in and outbound movements to and from the golf course and other uses in the area. This improvement is a short term priority to be considered as part for the 2005 Major Street Program
4.1.3 Other Intersection Improvements
Long term intersection improvements will be required at:
- 34th Street
- future East Service Road (Figure 4.1.3a) connections.
- Wolf Creek Drive
- 45th Street (Figure 4.1.3b)
- Highway 2A (See Section 4.2)
- C & E Trail - Traffic Control Lights Only
- 70th Street (Figure 4.1.3c)
4.1.4 Control of Truck Traffic
The movement of trucks on Highway 12 has a significant impact, especially through the downtown area. Of particular concern are those vehicles carrying hazardous goods. Diverting truck traffic from Highway 12 however is not possible for the following reasons:
- Lack of viable alternate routes (See discussion of East / west cross town routes more fully in Section 5.3)
- An evaluation of truck movements in 2002 leads to the conclusion that much of the truck traffic is local, either originating or terminating in the Town or stopping in the Town for some purpose.
- Primary Highways under provincial jurisdiction are designated truck routes and dangerous goods routes.
As such the presence of trucks on Highway 12 will have to be accepted but the Town will strive to mitigate the effects by advocating with Alberta Transportation that:
- the hazardous goods be prohibited on Highway 12 from Highway 2 to Highway 12;
- the alternative route available for hazardous goods consisting of Highway 2, Highway 2A and Wolf Creek Drive be promoted;
- all through truck traffic be encouraged to use the alternative hazardous goods route as well; and
- the intersection of Highway 2 and 2A north of Lacombe be upgraded as necessary to more easily accommodate the turning movements of trucks.
4.2 Highway 12 / Highway 2A Intersection, Canadian Pacific Railway Crossing
The Town's highest priority remains the reconstruction of the Highway 2A / 12 intersection and the related crossing of the Canadian Pacific Railway to improve safety. A plan to reconfigure the intersection and alter the railway infrastructure was developed in 2001. Funding was proposed to be provided by Canadian Pacific Railway, Alberta Transportation and the Town. While the railway and the Town have been prepared to make their respective contributions since that time, Alberta Transportation has not yet committed to funding their identified share.
Associated with this project would be the closure of the 49th Street entrance to Highway 12. A landscaped area would be created as part of the larger intersection improvements. 49th Street would be converted to 2 way traffic with access to and from the south end of the street by way of the parking lot to the lane to the west.
Pedestrian movement would be accommodated with the construction of a sidewalk on the south side of the intersection.
4.3 Highway 2A
The long term design concept for Highway 2A as an upgraded four lane urban street was established with 1999 Highway 2A study. The sectional designs from south to north are linked: 46th Street to Highway 12 | Highway 12 to 45th Street | 45th Street to Woodland Drive | Woodland Drive to Dickens Road | Dickens Road to 63rd Avenue.
4.3.1 South from Highway 12 to South Boundary
From Highway 12 south to 46th Avenue and beyond to the south Town boundary, Highway 2A is proposed to be constructed to a 4 lane divided urban profile arterial road with 3.7 metre wide lanes and a 6 metre wide raised median on a new alignment adjacent to the railway tracks. The existing Highway 2A would become a 11.5 metre wide service road to provide access to existing businesses. Parallel parking would generally be permitted along the east side of the service road although in some locations it may be necessary to prohibit parking in order to allow large vehicle access/egress to certain businesses.
Figure 4.3.1a illustrates the proposed configuration for this section of Highway 2A. The posted speed limit in this section would remain at 50 km/h. All-directional access to/from Highway 2A will be maintained at 48 Avenue, 49A Avenue and 50 Avenue. A right-in/out access to Highway 2A is also proposed at 49C Avenue to provide access to the core of the downtown commercial area and the existing parking area
A trail / sidewalk combination would be developed on the east side of the highway.
The intersection with 46th Avenue would be realigned southward to allow the extension of 46th Avenue west to link up to the existing 46th Avenue and provide a primary collector route to 58th Street (See Section 5.3 on East / West Cross Town Routes)
Timing of the construction of this section is dependent on the Government of Alberta. The construction timeframe is targetted for 2010.
4.3.2 North From Highway 12 to Woodland/Wolf Creek Drive
In conjunction with the intersection improvements at Highway 12, the Town will seek to reconstruct Highway 2A northward to include the upgrading of the Woodland / Wolf Creek Drive intersection. Alberta Transportation will be be requested to consider this project in 2005 so that the work can be completed in conjunction with work proposed by the Town.
From Highway 12 to 52nd Avenue, Highway 2A is proposed to reconstructed as a 5 lane undivided urban profile arterial road with 4 through lanes 3.7 metres in width and a 3.5 metre wide left turn lane. (Figure 4.3b) The undivided cross-section would allow all-directional access to the existing businesses along the west side to be maintained and reduces the right-of-way to be acquired from the railway to 5 metres.
Surface drainage would be moved from the adjacent ditches to the street carriageway and boulevards, including the median between the highway and service road, would be landscaped. A trail / sidewalk combination would be developed on the west side of the highway.
From 52nd Avenue north to Woodland/Wolf Creek Drive, Highway 2A (Figures 4.3b and 4.3c) is proposed to be reconstructed to a 4 lane divided rural profile arterial road with four 3.7 metre wide through lanes and a 6 metre wide raised median to accommodate 3.5 metre wide left turn lanes at intersections.
Speed would remain at 50 km/h from Highway 12 to 45th Street then rise to 70 km/h north to Town's northern boundary.
4.3.3 Intersection of Heritage Way
The construction of a type II intersection at Heritage Drive was identified in the 2002 Traffic Study in Figure 4.3.3 however it was deemed that the additional "bulbing" required would be impractical because of the effect on the two existing restaurants. As well the placement of a divider in the intersection would be unacceptable. Instead the intersection will be upgraded to greatest extent possible on the existing geometry in 2005 and the traffic control signals will have to be used to control traffic movements when congestion and/or safety become issues.
4.3.4 Intersection of Woodland/Wolf Creek Drive
With the continued population growth in the northern section of the Town and the development of major retail commercial in the vicinity of the intersection, traffic volumes at this intersection have grown significantly. The proposed upgrading of the intersection would provide right and left turn lanes and increased separation of the highway and service road intersection as set out conceptually in Figure 4.3.4. As well it is proposed to install traffic control lights on the Highway intersection and control gates at the railway crossing immediately to the east of the highway intersection.
4.3.5 North from Woodland/Wolf Creek Drive to North Boundary
Upgrading of the remaining section of Highway 2A north to the boundary of the Town to a similar standard and design would be undertaken as a secondary priority and would be dependent on provincial government funding.
4.3.6 Service Roads
The west services road from Heritage Way to 63rd Avenue will be upgraded to a wider, urban profile roadway with lighting. That portion from Heritage Way to Dickens Lane would upgraded in 2005 and that section from Dickens Lane to 63rd Street would completed at the time that the section of Highway 2A from Woodland / Wolf Creek Drives to the north boundary is completed. A portion at least of the costs of the upgradings is proposed to be recovered by contributions from adjacent properties.
4.4 Highway 2
4.4.1 Access at 58th Street
While the maintenance of this connection at the north west corner of the Town's boundary and the ultimate development of an interchange at this location are not vital to the success of the Town road network at the 20,000 population horizon, the Town, in concert with Lacombe County, propose that, in the interests of maintaining road links between the Town and rural areas to the north west, this connection be continued initially by way of a level crossing and ultimately by way of interchange.
4.2.2 Ramp Access to Commercial Areas
The Town will strongly advocate for the provision of off-ramp access to the highway commercial areas in College Heights and north areas of the Town.
4.2.3 Interchange with Highway 12
The Town would support the reconstruction of the Highway 2 and 12 interchange to a modern diamond configuration with particular accommodation for west bound Highway 12 to south bound Highway 2 movements and for north bound Highway 2 to east bound Highway 12 movements.
5.1 Elizabeth Lake Drive
Elizabeth Lake Drive, extending west across Elizabeth Lake to 58th Street, had a status under the Town's previous plans as an optional road. The 2002 Traffic Study indicates that the street will be necessary to accommodate the traffic generated within the Town at the 20,000 population horizon. While designated as a collector road, Elizabeth Lake Drive will be constructed as close to an arterial road standard as is practical. The street will will also be extended beyond 58th Street to intersect with Woodland Drive west of 58th Street so as to ensure that the traffic volumes on Woodland Drive do not exceed its capacity.
The Maple Drive Traffic Study. went to examine in greater detail the alignment of Elizabeth Lake Drive and the implications for closure of Maple Drive. Arising from the study, the Town will give no further consideration be given to a re-alignment of Maple Drive through the campus area. Interim measures would be implemented on an ongoing basis where practical to maintain safety.
Construction of Elizabeth Lake Drive will be considered when the volume of Woodland Drive begins to approach 7,000 vehicles per day or when non-campus traffic using the existing Maple Drive through the College campus reaches a point where congestion and safety are of significant concern. Closure of Maple Drive through the College campus area would not be considered until that portion of Elizabeth Lake Drive crossing Elizabeth Lake is constructed.
The connection of Cobb Street to Elizabeth Lake Drive be moved westward from present planned location at Erin Street to Elizabeth Park Boulevard.
5.2 Central Area Street Configuration
To accommodate the growing traffic volumes on streets in the vicinity of the schools and Sports and Leisure Complex and on streets leading to the downtown area from the north, the following reconfiguration will be implemented in 2005.
- Promotion of C & E Trail south of 54th Avenue as a primary collector to move traffic between north and south regions of the Town and to establish a major controlled intersection with Highway 12.
- Closure of 53rd Street at 54th Avenue to allow conversion of 5 way stop intersection at 54th Avenue/ 53rd Street and C & E Trail to a 4 way stop intersection as illustrated in Option 4 in Figure 5.2
- Promotion of 51st Avenue from Highway 2A west to C & E Trail from a local road to a through collector road to allow distribution of traffic into the down areas and provide a localized east - west alternative to Highway 12. All traffic entering north and south onto 51st Avenue would be controlled by stop signs.
- Restoration of 49th Street south of 51st Avenue to two way traffic movement with access provided west through the Town owned parking lots to the lane. 49th Street would be closed at Highway 12.
5.3 East / West Cross Town Routes
As noted in Section 4.1, the heavy and growing volume of traffic on Highway 12 has a negative impact on the central area of the Town especially through the downtown core. Unfortunately the existing street and development patterns and the existence of the railway lying laterally to the east of the downtown area do not allow any practical alternatives by which traffic can be easily diverted from this route. Given the lack of alternatives for Highway 12, it is in the Town's interests to provide and preserve other east / west routes within the Town as a means of lessening the amount of traffic that must use Highway 12.
In addition to providing for the construction of Elizabeth Lake Drive (Section 5.1), the flow of traffic on 54th Avenue, 56th Avenue and Woodland Drive will need to be preserved. Other specific plans include:
5.3.1 46th Avenue
To provide east/west access south of Highway 12 including an alternate railway crossing, a nearer term solution is the development of 46th Avenue as a cross-town primary collector from 34th Street in the east to 58th Street in the west. As noted in Section 4.3.1, a link from Highway 2A to the existing 46th Avenue will be constructed. As well a connection from C & E Trail west to 58th Street will be developed and a practical alternative here would be to convert the lane south of Lacombe Lodge to one way west bound and 46th Avenue between 58th Street and C & E Trial to one way east bound.
5.3.2 51st Avenue
To improve movement of traffic within the downtown areas, 51st Avenue will become a through collector road from C & E Trail to Highway 2A. (See Section 5.2) However because of the configuration of Highway 2A and the presence of the railway, 51st Avenue cannot be considered as an alternative to Highway 12 for through traffic.
5.3.3 South Bypass
If the overall volume of traffic can not be realistically diverted, then there was some speculation that at least the heavy truck traffic could be diverted, possibly by way of a southerly bypass route . However, a subsequent study of truck movements through the Town on Highway 12 has revealed that only about 200 to 250 trucks per day can be considered as truly through movements. The balance of the trucks are considered local traffic and would not use a south bypass route. As such consideration of a south bypass to relieve Highway 12 is not viable for many years.
Nevertheless it is proposed to identify within the Street Network Plan and the Intermunicipal Development Plan such a bypass on an alignment that would connect Highway 12 at 70th Street, intersect Highway 2A at 38th Avenue and return to Highway 12 at 34th Street.
6.1 Traffic Signals
Growth in traffic volumes will clearly necessitate as a matter of course the signalization of a number of key intersections throughout the Town. Based on the forecasts developed for the 20,000 population horizon, the signalization priority is set out in Table 6.1 As part of the major third year review, traffic volumes and accident frequency would be reviewed at each of the locations and the order re-prioritized as may be appropriate.
6.2 Woodland Drive Intersection at C & E Trail
Congestion is only an issue during the school "rush hour" Signalization of this intersection is included as a "beyond short term" horizon priority in Table 6.1 and there is no further action that can be taken to relieve the short term congestion issues. The situation at the intersection will be reviewed again as part of the three year review process next scheduled for 2005.
6.3 50th Street from 54th Avenue to C & E Trail
Rising traffic volumes on 50th Street in the vicinity of the elementary schools and at the access to the junior high school will continue to cause increasing congestion and concerns about safety of school children. As there are no practical alternative routes for the traffic, the street will need to accept and accommodate higher traffic volumes. Traffic volumes and congestion will be reviewed as part of the three year review process and should concerns be raised about congestion and safety, the Town will consult with the school authority to develop an approach to reduce congestion and improve safety.
6.4 58th Street Intersection at 56th Avenue
Vehicular and pedestrian congestion is an issue during the school rush hour however no data has been collected to assess the warrant for improved intersection management. As such, no action is proposed at this intersection at this time. Signalization of the intersection is not included in Table 6.1 but is identified on the Long Term Road Network Plan Map 1 as a possible location.The situation at the intersection is proposed to be reviewed again as part of three year review process next scheduled for 2005.The situation at the intersection is proposed to be reviewed again as part of three year review process next scheduled for 2005 and the Town will monitor the intersection, specifically collecting traffic and pedestrian volume data during the weekday AM, Noon and PM periods to assess the need for improvements to the intersection including the provision of improved pedestrian crossing accommodation.
The Town will evaluate the surface and sub surface conditions of streets from time to time using a professional pavement management system to identify the nature and timing of repairs and rehabilitation of Town streets in order to achieve the most cost effective approach to the Town's overall objective of providing streets to a paved asphalt standard. Rehabilitation will be undertaken every three years on average and will be combined where possible with new construction and major upgrading to achieve cost economies of scale.
The next major street rehabilitation project will be undertaken in 2005 and the next major professional evaluation of street conditions will be undertaken in 2006.
The 2002 Traffic Study identified a number of locations within the Town where the existing traffic control devices (signs, signals or pavement markings) are either inappropriate or inadequate for the current usage. These locations and the associated proposed improvements are in set out in Section 4.3 of the Study (8 separate pages - 4.3.1 to 4.3.3) These improvements will be implemented on an on-going basis as budgets allow.
New Streets and those streets which upgraded or reconstructed will have street lighting to the Illumination Engineering Society of North America (IESNA) publication RP-8 standard. The Town will endeavor to improve street lighting on existing streets as resources allow.
Street lighting standards were addressed Section 5 of the 2002 Traffic Study. The previous Road and Transportation Association of Canada (RTAC) standards specified previously by the Town were seen to provide excess illumination and resultant extra costs in energy and facilities to support these levels.
The assessment of surface transportation noise as it relates to residential subdivisions, including design criteria, design noise levels and responsibilities to both the developer and the Town was addressed in Section 6 the 2002 Traffic Study. Further consideration to noise attenuation will be addressed in the Town's review of development standards in 2004.
The next major construction program for town streets is planned for 2005. (See also the 2004 Financial and Budget)
Planned components of the 2005 Program include:
Alberta Transportation
- Reconstruction of Intersection of Highway 12 and Highway 2A
- Reconstruction of Highway 2A from Highway 12 north to Woodland Drive / Wolf Creek Drive
- Installation of Traffic Control Lights at Highway 2A and Woodland / Wolf Creek Drive
- Installation of Traffic Control Lights at Highway 12 and C & E Trail
- Golf Course Access upgrading on Highway 12
Canadian Pacific Railway
- Track Reconfiguration and Signal Upgrading at Highway 12 Grade Crossing
- Installation of Crossing Gate Protection at Wolf Creek Drive
Town of Lacombe
- Related improvement at the Highway 12 / 2A intersection including right hand turn bay to 46th Street south, sidewalks on the south side, closure of 49th Street and landscaping.
- Related intersection, drainage and landscaping along Highway 2A north.
- Highway 2A service road upgrading from Heritage Way to Dickens Lane and intersection improvements at Heritage Way and Woodland Drive.
- Conversion of 49th Street to two way traffic
- 5 Way Stop Reconfiguration / Closure of 53rd Street
- 51st Avenue Upgrading from Highway 2A to C & E Trail
- Development of 46th Avenue one way coupler between C & E Trail and 58th Street
- Pavement Overlay - Various Locations
© 2004 The Town of Lacombe.
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