Report to Committee of the Whole - Re: Left Turn Signal Update – Island Highway Intersections

Challenges – Island Highway at Admirals Road Intersection

This intersection does have implementation challenges including but not limited to:

• Signal poles are old for the southbound and westbound legs of the intersection. Additional pole upgrades may be required to support the additional signal heads: this would significantly increase project costs.
• There are vehicle overlap issues that complicate left turn movements (Figure 4). A ‘lag’ cycle for the southbound left turn movement would be required and, while not indicated to be a significant issue, it does increase signal timing that could impact level of service: most legs of this intersection already perform at a level of service of ‘F’.
• An ‘overlap’ issue (Figure 4) will occur that may require additional signal phasing to mitigate opposing traffic conflicts. This issue will require consultation with MoTI as the owners of Admirals Road. MoTI may require a “no overlap” requirement of larger vehicles – substantial changes to the intersection would be required if this was to be the case (for reference, a ‘WB-20’ rated vehicle is equivalent to a semi-truck with payload. This is often MoTI’s standard, and Admirals Road is considered a truck route in accordance to the Town’s Truck Route Bylaw 456).

Figure 4: Demonstration of overlap issue for Left Turn Movements

NEXT STEPS:

Staff recommend the following next steps with respect to this project:

1. Continue with the left turn signal upgrades for the Island Highway at Helmcken Road intersection in 2024. The works are minor and, even with the addition of the northbound left turn signal upgrade, are expected to fall within the 2024 budget.
2. Incorporate the left turn signal upgrades for the Island Highway at Admirals Road intersection into a larger capital project. Doing so would:
   • Address the spatial constraints of the intersection by optimizing the laning more holistically than through ad-hoc upgrades (thus mitigating rework).
   • Allow for staff to meaningfully engage with direct stakeholders to this project, including but not limited to Songhees Nation, Ministry of Transportation and Infrastructure, District of Saanich and the Township of Esquimalt. This intersection is a critical juncture for these stakeholders.
   • Provide alignment with the Town’s active transportation network plan: the intersection would dictate the form of active transportation improvements along Admirals Road.
   • Provide the needed additional funding to effectively install the left turn signals per Council’s request.

At the November 21, 2023 regular Council meeting, Council actioned staff to create a project summary for the “Design of Admirals Road (west side) bicycle lane/widened sidewalk/bus stop improvements”. Staff recommend incorporating the intersection improvements (and requested left turn signal design) into this project summary for future budget deliberation.

SUSTAINABILITY/CLIMATE CHANGE IMPACTS:

Aligning the left turn signal project at the Island Highway / Admirals Road intersection with a larger project would foster active transportation values as defined in the Town’s Active Transportation Network Plan. The Admirals Road corridor is identified as a critical active transportation corridor – therefore, Council’s suggested bike lane / widened sidewalk / bus stop improvements on the west side of Admirals Road would inform on the level of upgrades required at this intersection.

FINANCIAL IMPLICATIONS:

There are no financial implications beyond that outlined in Project Summary C-140 regarding the Island Highway at Helmcken Road intersection.

Given the challenges indicated regarding the Island Highway at Admirals Road intersection, additional funding would be required to install left turn signals at this intersection.

ALTERNATIVES:

Council may wish to:

• Request additional information
• Request alternative options or actions – Council may consider ‘phasing’ the left turn signal work at the Island Highway / Admirals Road intersection. However, additional analysis will be required to determine whether the signal poles would need to be replaced. This could result in increased costs above the current allotted budget, and the installation could be temporary in nature given the possible future upgrades on Admirals Road.

CONCLUSION:

Staff retained a Transportation Engineering consultant to review the feasibility of adding left turn signalization to the Island Highway / Helmcken intersection and the Island Highway / Admirals Road intersection.

Analysis indicated that left turn signalization for the Island Highway / Helmcken Road intersection met the MoTI warrant. The recommendation was to add left turn signals for both westbound Island Highway and northbound Helmcken Road, as doing so would complete left turn signalization for all four legs while providing more flexibility in signal timing. It is expected that the works would be within budget for a 2024 installation.

Analysis indicated that left turn signalization for the Island Highway / Admirals Road intersection met the MoTI warrant for the westbound leg, but not the southbound leg. However, the recommendation was to have all legs receive a left turn signal to provide more flexibility in signal timing. There are numerous challenges associated with this intersection, including (1) potential replacement of aging signal poles, (2) vehicle overlapping due to simultaneous left turn movements, resulting in MoTI direction to make more substantial changes to the intersection to reconcile, and (3) additional resources required to conduct engagement with Songhees Nation, Ministry of Transportation and Infrastructure, District of Saanich and Township of Esquimalt. Staff therefore recommend that this project be incorporated into a larger capital project such as the broader based Admirals Road Active Transportation that Council actioned staff to develop for 2024 budget deliberations.

ATTACHMENTS:

1. Project Summary C-140: Traffic Signal Upgrades – Collector Road Intersections