Optionsgvcc.bc.ca/.../BMP-Phase-1-Report-final-July-24-.docx · Web viewGovernance and Priorities Committee ReportJuly 18, 2014. Bicycle Master Plan Update – Recommended Network

Governance and Priorities Committee ReportFor the Meeting of July 24, 2014

To: Governance and Priorities Committee Date: July 18, 2014

From: Brad Dellebuur, Acting Assistant Director – Transportation and Parking Services

Subject: Phase One of Bicycle Master Plan – Public Engagement, Recommended Network Map and Priority Project List

Executive SummaryOn November 7, 2013, Council approved a Project Charter for updating the City’s Bicycle Master Plan. The deliverables for this project included public engagement, recommended bikeway routes network map, a cycling infrastructure implementation priority list, and order-of-magnitude cost estimates. A Bicycle Task Force consisting of Mayor Fortin, Councillors Alto and Isitt, and City staff was established, and a Technical Working Group including cycling representatives was also established to consider stakeholder input and make recommendations to Council on revisions to the City of Victoria cycling network, including identifying and prioritizing projects for the next five years.

Public engagement commenced in the spring of 2014. Over a two month period, the City hosted 11 information stations and three workshops, engaged directly with over 1,500 people, and received 1,307 completed surveys. Staff analysed all of the information collected during the engagement process and with the Technical Working Group, developed a proposed network map and identified priority projects for implementation over the next five years. In addition, the recommended Bicycle Network proposes a series of routes designated “All Ages and Abilities”, to target newer and less confident cyclists. Reaching those who do not cycle or cycle often was a strong engagement objective.

The recommended priority projects target major streets, focusing on completing east/west corridors which already have cycling facilities on other segments, developing routes that encourage a low-stress, high-quality cycling experience, and increasing connectivity on routes that will attract new or less experienced cyclists. In addition to large capital projects, smaller improvements at strategic locations on the network have been identified, to address barriers to cycling that were also highlighted in the engagement process.

The cost of the priority projects over the next five years is expected to be $5 million. Required budget for this work will be reflected in the 2015 Financial Plan forwarded for Council’s consideration.

The second phase of the project is to build upon the high volume of public input received to update the Bicycle Master Plan, developing strategies and actions to guide cycling in Victoria over the next 25 years. At this time, it is anticipated an updated Bicycle Master Plan document will be presented to Council for consideration in March 2015.

Recommendations:1. That Council endorses the 2014 Recommended Bicycle Network Map.2. That staff implement the following strategic improvement projects in 2014, using the $121,000 in

additional capital funds Council had previously approved for Active Transportation improvements: Doncaster Driver between Myrtle Street and Hillside Avenue (path realignment) 900 block Convent Street (improved access at Vancouver Street) 900 block Collinson Street (improved access at Quadra Street) Galloping Goose trail (paving of pedestrian path south of Selkirk Trestle)

3. That Council endorses the following priority projects for Bicycle Master Plan Implementation over the next five years (2015-2019):

Pandora Avenue between Store Street and Cook Street Johnson Street between Store Street and Cook Street Vancouver Street route (from Vancouver Street/Park Boulevard, to Fifth Street/Tolmie Avenue, via

Graham Street and Fifth Street) Off-Bay Street route (Haultain Street/Kings Road between Richmond Road and Dowler Street) Off-Shelbourne Street route (Doncaster Drive/North Dairy Road to Gonzales Beach) Wharf Street/Belleville Street route between Pandora Avenue and Oswego Street.

4. That Council authorize staff to proceed with design work for the proposed Pandora Avenue project.5. That Council direct staff to bring forward the Pandora Avenue construction project for early

consideration of approval, as part of the 2015 Financial Plan review.

Respectfully submitted,

Brad Dellebuur,Acting Assistant DirectorTransportation and Parking Services

Dwayne Kalynchuk, P. Eng., Director of Engineering and Public Works

Katie HamiltonDirector of Citizen Engagement and Strategic Planning

Report accepted and recommended by the City Manager:

Date:

Governance and Priorities Committee Report July 18, 2014Bicycle Master Plan Update – Recommended Network Map and Priority Project List Page 2 of 12/tt/file_convert/5aaf159f7f8b9a25088d1009/document.docx

PurposeThe purpose of this report is to update Council on the results of the engagement process for the Bicycle Master Plan update, request adoption of the proposed bicycle network map, propose strategic improvement projects for 2014, request endorsement of a priority project list for the next five years, and seek authorization to proceed with designing the identified priority project for 2015.

BackgroundThe City’s current Bicycle Master Plan was adopted by Council in 1995. The 1995 Plan proposed policies, engineering standards, enforcement programs, a cycling network and other measures to actively encourage greater cycling use in a safe environment. Since 1995, the City has been implementing the recommendations in the plan, with a focus on installing on-street cycling facilities.

Recognizing the need to complement the City’s Official Community Plan, the Pedestrian Master Plan, the Greenways Plan, and the CRD’s Pedestrian and Cycling Master Plan, Council approved a Project Charter (attached) on November 7, 2013 to update the City’s Bicycle Master Plan. The deliverables for this project included:

An updated Bicycle Master Plan, containing: a recommended bikeway routes network map a cycling infrastructure implementation priority list, and Order-of-magnitude cost estimates.

A Bicycle Task Force was established for project oversight (Mayor Fortin, Councillor Isitt and Councillor Alto, and staff members Steve Hutchison, Julie Potter, Kristina Bouris, and Brad Dellebuur). A Technical Working Group (the above-noted staff members, along with Ray Straatsma from the Greater Victoria Cycling Coalition, and John Luton from the Capital Bike and Walk Society) was also established to consider stakeholder input and make recommendations to Council on revisions to the City of Victoria cycling network, including identifying and prioritizing projects for the next five years.

Early conversations with the Task Force and the Technical Working Group, combined with feedback received from the public and cycling stakeholders, indicated there was merit in expanding the scope of the project to include updating the entire Bicycle Master Plan document. Staff will start this work in September 2014, looking at policies and strategies to increase cycling mode share. This updated plan will become an essential guiding policy document for the municipality, and an important educational tool for the community. It is anticipated an updated Bicycle Master Plan document will be presented to Council for consideration in March 2015.

Issues and Analysis:In the spring of 2014 the City of Victoria began an engagement process to help shape an updated Bicycle Master Plan. Over a two month period, City staff hosted 11 information stations and three workshops, engaged directly with over 1,500 people, and received 1,307 competed surveys.

This feedback was used to inform an updated network map, and develop a list of priority projects for the next five years. The feedback will also be used to inform the scope for Phase Two of the Bicycle Master Plan update.

The public input noted that currently the routes most desirable are multi-use trails (Galloping Goose) and quieter, local or minor collector streets (such as Haultain Street, Moss Street and Vancouver Street). Engagement participants mentioned they favoured these streets because they are quieter routes that feel safer, and provide a higher quality of experience for cyclists.

Routes most sited as needing improvements were arterial streets, including Pandora Avenue, Shelbourne Street, Johnson Street and Blanshard Street. Lack of separation from moving traffic, high volumes, higher speeds, and the potential for motor vehicle conflicts were most often cited as deterrents to cycling on these streets.

While a significant portion of the engagement focused on network improvements, several key themes consistently emerged across all engagement channels:


1. Safety is the Largest Barrier:Safety was the most common identified barrier to cycling, for current and prospective cyclists. The top recommendations to increasing the safety of cyclists were to:

Physically separate cyclists from motor vehicle traffic on arterial streets, Add quieter, local roads to the network, and Introduce more traffic calming measures on these quieter roads, Increase education, to reduce conflicts between drivers and cyclists, and increase the

confidence of cyclists.

2. Be Bold and be a Leader:A significant portion of the feedback mentioned the desire to see the City become a leader in cycling in North America, by exercising the political will to advance cycling improvements, increasing funding, and implementing more innovative solutions to alleviate barriers.

3. Cycling for All Ages and Abilities:A network that is accommodating to all ages and abilities through strategic route location and safe infrastructure was frequently mentioned when discussing the vision for cycling in Victoria.

4. Make Cycling Irresistible:The desire for cycling to be irresistible as a result of an integrated network, good connections to key destinations such as neighbourhoods and adjacent municipalities, and an overall high quality experience, was a strongly recommended goal for the City.

Generally, the recommendations in the feedback received from both current and prospective cyclists were similar, despite the variance in their cycling comfort levels.

Development of Proposed 2014 Cycling NetworkFollowing the conclusion of the engagement process, staff analysed all of the information collected, identifying the most frequently identified corridors for improvements, the preferred types of improvements, cyclist origins and destinations, and what links had been identified for addition or deletion from the existing network. The staff findings were reviewed with the Technical Working Group, and a proposed network map was subsequently developed (see attached – 2014 Recommended Bicycle Network).

In designing the proposed Bicycle Network, staff and the Technical Working Group considered: Public input received from April to June 2014 Connections to bicycle routes in adjacent municipalities Designation in other plans (e.g. Greenways routes, regional Pedestrian and Cycling Master Plan routes) Existing street classification (posted speed limits, volume, how a road is used) Existing cycling infrastructure on route (e.g. traffic calming, diverters, etc.) Topography Ideal density for the cycling network grid (i.e., spacing routes approximately 500 m apart) Connections between key destinations Connections within and between neighbourhoods

All Ages and Abilities RoutesAs part of the proposed 2014 Bicycle Network, a series of routes are proposed to be designated “All Ages and Abilities”. While the long-term goal is for all routes in the cycling network to achieve the highest level of safety and comfort, All Ages and Abilities routes are being proposed to target newer and less confident cyclists. It is proposed that these routes (see attached - 2014 Recommended Bicycle Network – All Ages and Abilities Routes) will include features that encourage a low-stress, high-quality cycling experience, such as:

Traffic calming measures on local streets to reduce non-local traffic, and keep vehicle speed low Physical separation from traffic on major streets, to increase comfort Safer intersections and crossings, with good visibility to reduce conflict potential between road users Intersection design that prioritizes cycling movements


Routes selected for their gentle topography, high comfort level, links to key destinations and aesthetic value

Connections to Key DestinationsThe proposed 2014 Bicycle Network also improves connections to key destinations in Victoria and beyond. Among the highlights:

All public schools, community centres and seniors centres in the City of Victoria are connected directly to a cycling route

Urban villages and town centres are on or within one block of a cycling route Better connections to and within downtown Better connections to existing or proposed cycling routes in Saanich, Oak Bay, and Esquimalt Better access to the Galloping Goose and E&N Trails Three direct connections to Royal Jubilee Hospital (major employment centre)

Project Prioritization FrameworkFollowing identification of the proposed Bicycle Network, staff broke the various corridors into ‘logical’ segments for implementation. Staff developed a Project Prioritization Framework to rank these segments, using objective criteria already established in the Official Community Plan and the Downtown Core Area Plan. In addition to these criteria, the Framework also incorporated guidance from the 2003 Greenways Plan, the existing 1995 Bicycle Master Plan, the 2008 Pedestrian Master Plan, and research of best practises used by other cities throughout the world.

In general, the Framework evaluated segments according to their ability to meet four objectives and associated criteria. Table 1 shows each objective and the corresponding considerations that were used to evaluate each project.

The Framework was developed with the Technical Working Group, and endorsed by the Bicycle Task Force.

Table 1. Priority Project Selection Criteria – Summary

Objectives Criteria Considerations1. Improve connectivity

within the existing network, to other networks, and to key destinations

Connectivity tocycling network

To what degree does the project overcome a gap, barrier or bottleneck in the connectivity of the existing or recommended network?

Connectivity toother networks

Does the project connect with or follow a designated Greenway, regional route or a route in an adjacent municipality?

Connectivity to key destinations

Does the project improve bicycle access to a major destination such as a park, community or seniors centre, major workplace or school?Will the project connect areas targeted in the OCP for future residential or employment growth (e.g. town centre, large urban village, employment and industrial districts)?Will the project provide a new or enhanced connection to a multi-modal hub or exchange?

2. Increase comfort and safety for all ages and abilities

Serves safety need Can the project improve cycling at locations with documented safety concerns?What is the degree to which the project addresses perceived safety and comfort concerns identified through public engagement?

Enhances comfort Will the project make the route more suitable for all ages and abilities?

4. Improve routes that have a high level of existing or potential demand

Return onInvestment

What is the estimated project cost relative to the expected or potential ridership? What is the increase in length of new or better-connected cycling infrastructure?

Travel demand What is the estimated potential for generating new bicycle trips, considering type of facility, end-of-trip facilities nearby, destinations along the route, connections to transit, and topography of corridor? What is the estimate of “latent demand”?


5. Encourage projects that are achievable within anticipated resources

Resources What is the relative cost level of the project? What is the estimated cost level for ongoing maintenance?

Leverage Does the project have the ability to receive external funding (from other levels of government, foundations, etc.)? Is there recent or anticipated development in the adjacent area, where developer contributions could help offset costs?

Future Upgrades Is the road scheduled for improvements or upgrades that could make it easier to offset the cost of upgrades to the bicycle network?

Adopted Plan Is the route already identified as a location for improvements in the OCP, DCAP or other local area plan?

98 road and/or trail segments were identified for potential improvement through the public engagement and staff expertise. These also include all segments for new routes recommended for the 2014 network. Each individual segment (“project”) was then evaluated and scored against the quantitative and qualitative measurements, which correspond to the four objectives listed above.

The individual scores were summed to arrive at an aggregate score for each project. The 25% top-ranked projects were then presented to the Technical Working Group for review. Working together, staff and the Technical Working Group members evaluated additional qualitative criteria, and used the final scores to determine a recommended list of priorities for the next 5 years (listed below).

Implementation1. Strategic Improvements (projects under $25,000)In addition to large capital projects, smaller improvements at strategic locations on the network can be made to address barriers to cycling identified in the engagement process. A list of small-scale areas of concern was gathered during the engagement process, with participants identifying locations where they felt a relatively minor improvement would make cycling easier and/or safer. Most of these improvements are located on All Ages and Abilities Routes, or are on local streets where the current condition is an impediment to greater cycling use.

While not an exhaustive list, the following locations for improvements were identified: Doncaster Drive between Myrtle Street and Hillside Avenue (path realignment) 900 block Convent Street (improved access at Vancouver Street) 900 block Collinson Street (improved access at Quadra Street) Galloping Goose trail (paving of pedestrian path south of Selkirk Trestle)

Staff recommends implementing the above-noted strategic improvement projects in 2014, using the $121,000 in additional capital funds Council had previously approved for Active Transportation improvements. This work would be in addition to cycling improvement projects already scheduled this year - Skinner Street between Catherine Street and Bay Street, and Cook Street between Finlayson Street and the Victoria/Saanich municipal boundary, bringing 2014 expenditures on cycling infrastructure projects to approximately $580,000.

Other small-scale improvements identified through the engagement process will be implemented each year, to continue to eliminate barriers to cycling.

2. Proposed Priority Network ImprovementsThe following projects are recommended for implementation in the next 5 years. Details such as design concept, specific improvements and detailed cost estimates will be worked out on a project-by-project basis. The recommended priority projects (see attached – 2015-2019 Priority Network Improvements) target major streets that will complete east/west corridors which already have cycling facilities on other segments, as well as All Ages and Abilities routes that encourage a low-stress, high-quality cycling experience.


Proposed 2015-2019 Priority Projects (2015- 2019) Pandora Avenue between Store Street and Cook Street - $1.3M Johnson Street between Store Street and Cook Street - $1.3M Vancouver Street route (from Vancouver Street/Park Boulevard, to Fifth Street/Tolmie Avenue, via

Graham Street and Fifth Street) - $500,000 Off-Bay Street route (Haultain Street/Kings Road between Richmond Road and Dowler Street) -

$250,000 Off-Shelbourne Street route (Doncaster Drive/North Dairy Road to Gonzales Beach) - $250,000 Wharf Street/Belleville Street route (between Pandora Avenue and Oswego Street) - $1.3M

The Order-of-Magnitude costing noted for these projects are based on preliminary estimates for the Pandora Avenue project, and staff knowledge/experience from previous cycling improvement projects.

Staff recommends proceeding with the Pandora Avenue project in 2015, as it will extend the existing cycling facilities west, and connect to the new bike lanes and multi-use trail being constructed as part of the Johnson Street Bridge project. Completion of this section of Pandora Avenue will provide continuous cycling facilities from the Victoria/Oak Bay municipal boundary to the Victoria/Esquimalt municipal boundary. The scope of work built by the City on the Pandora Avenue project will be coordinated with frontage works associated with upcoming re-development projects on the corridor. This will potentially allow the City to accelerate implementation of the other identified priorities, following focused consultation and design development for each project.

Priority Projects – 2020 and beyond (in no particular order)Following completion of the identified short-term priority projects, staff would recommend re-evaluating the projects noted below, to determine which projects should be implemented over the next 5-year period (2020-2024).

Start Finish All Ages and Abilities

Dallas Road/Clover Point Dallas Road /Ogden Point *Galloping Goose Trail *Dallas Road/Foul Bay Road Dallas Road/Clover Point *(partial)Blanshard Street/Caledonia Avenue

Blanshard Street/Superior Street

E&N Rail Trail *Fort Street/Wharf Street Fort Street/Blanshard StreetDouglas Street/Tolmie Avenue Douglas Street/Hillside AvenueHaultain Street/Richmond Road Haultain Street/Cook Street *Bay Street/Government Street Bay Street/Vancouver StreetBlanshard Street/Tolmie Avenue Blanshard Street/Caledonia AvenueGovernment Street/Yates Street Government Street/Hillside AvenueGorge Road/Douglas Street Gorge Road/Jutland RoadDouglas Street/Hillside Avenue Douglas Street/Herald StreetDallas Road/Ogden Point Belleville Street/Pendray Street *Yates Street//Wharf Street Yates Street/Harrison StreetBay Street/Tyee Road Bay Street/Turner StreetToronto Street/Simcoe Street Toronto Street/Douglas Street

Recommended Scope for Comprehensive Update to Bicycle Master Plan (Phase 2)The second phase of the project will involve a comprehensive update of the Bicycle Master Plan document, developing strategies and actions to guide cycling in Victoria over the next 25 years. While some of these


strategies and actions were identified in the 1995 plan, updated standards and increased acceptance of cycling since the original plan was approved necessitates updating.

While the cycling network established in Phase 1 will be a cornerstone of the updated Bicycle Master Plan, there are a range of other topics that need to be addressed to support increasing the number of people who cycle. Many of these topics were identified through public engagement in Phase 1, while others were identified by staff and the Technical Working Group through a survey of the content and scope of Bicycle Master Plans in leading cycling cities in North America.

Recommended topics to be addressed by the update to the Bicycle Master Plan may include: Policy framework – vision, objectives, links to existing policies and plans Targets and strategies to increase the share of people cycling, particularly women and children Cycling Network – standards and classifications Bicycle parking and end of trip facilities Multi-modal integration Wayfinding Strategies to support cycling through education, encouragement, enforcement and promotion Economic development opportunities Implementation – including funding mechanisms and project prioritization Evaluation and monitoring

Phase 2 will be led by a comprehensive team of Engineering and Public Works, Citizen Engagement and Strategic Planning, and Sustainable Planning and Community Development staff. The existing Task Force and Technical Working Group will also be kept active until the completion of Phase 2, to assist with the completion of the project.

The broad engagement activities in Phase 1 provided much of the information needed to guide Phase 2. Based on this feedback, Phase 2 will include focused engagement on key topics (e.g. how to increase the share of women, children and seniors who cycle; cycling-related economic development opportunities; partnerships with external agencies). A proposed task list, strategy for any required engagement/consultation, and anticipated timelines for Phase 2 will be developed in September 2014. Additional public input will be sought on the draft of the updated Bicycle Master Plan document, to inform the public, and re-affirm that their input was utilized to advance cycling in the City. At this time, it is anticipated an updated Bicycle Master Plan document will be forwarded to Council for adoption in March 2015.

Options & ImpactsCurrent funding for Bicycle Master Plan Implementation for the next five years is approximately $1.25 million. While precise estimates for completing the short-term priority projects are difficult to compile at this time, as conceptual plans and detailed designs have yet to be completed, Order-of-Magnitude costing has been provided, based on staff knowledge and experience with previous projects. The cost of these projects is expected to be $5 million.

If the proposed short-term priority project list is approved, this will be reflected in the 2015 Financial Plan for Council’s consideration. In addition to coordination with ongoing redevelopment projects, external funding sources such as the provincial Cycling Infrastructure Partnership Program (CIPP) and ICBC’s Road Improvement Program will be pursued to leverage City funding for this work.

ConclusionsThrough the engagement process the public provided top project priorities, suggested changes to the cycling network, and provided a vision for cycling within the City. Staff analysed all of this information including where people currently enjoy cycling and why, the most frequently identified corridors for


improvements, types of suggested improvements, cyclists’ origins and destinations. Staff then determined if links needed to be added or removed from the existing network and developed a list of priorities for improvements for the next five years.

The prioritized list of projects is consistent with what was requested through the engagement process, and is a combination of improvements to All Ages and Abilities corridors, completing significant east/west cycling corridors through the Downtown core, and addressing identified spot improvements.

Recommendations:1. That Council endorses the 2014 Recommended Bicycle Network Map.2. That staff implement the following strategic improvement projects in 2014, using the $121,000 in

additional capital funds Council had previously approved for Active Transportation improvements: Doncaster Driver between Myrtle Street and Hillside Avenue (path realignment) 900 block Convent Street (improved access at Vancouver Street) 900 block Collinson Street (improved access at Quadra Street) Galloping Goose trail (paving of pedestrian path south of Selkirk Trestle)

3. That Council endorses the following priority projects for Bicycle Master Plan Implementation over the next five years (2015-2019): Pandora Avenue between Store Street and Cook Street Johnson Street between Store Street and Cook Street Vancouver Street route (from Vancouver Street/Park Boulevard, to Fifth Street/Tolmie Avenue, via

Graham Street and Fifth Street) Off-Bay Street route (Haultain Street/Kings Road between Richmond Road and Dowler Street) Off-Shelbourne Street route (Doncaster Drive/North Dairy Road to Gonzales Beach) Wharf Street/Belleville Street route between Pandora Avenue and Oswego Street.

4. That Council authorize staff to proceed with design work for the proposed Pandora Avenue project.5. That Council direct staff to bring forward the Pandora Avenue construction project for early

consideration of approval, as part of the 2015 Financial Plan review.

Attachments:2014 Recommended Bicycle Network2014 Recommended Bicycle Network – All Ages and Abilities Routes2015-2019 Priority Network ImprovementsProject Charter - Bicycle Master Plan Update





Documents

Optionsgvcc.bc.ca/.../BMP-Phase-1-Report-final-July-24-.docx · Web viewGovernance and Priorities Committee ReportJuly 18, 2014. Bicycle Master Plan Update – Recommended Network