HomeMy WebLinkAboutPSD-128-07
REPLACEMENT PAGE
Q!K-!l1glOn
REPORT
PLANNING SERVICES
Meeting:
GENERAL PURPOSE AND ADMINISTRATION CO~~1v:li0Yl-#6Pt1-620!7
Monday, November 5, 2007 (c91- C> 7
Date:
Report #:
PSD-128-07
File #: PLN 16.2.7
By-law #:
Subject:
REGIONAL CYCLING PLAN STUDY
RECOMMENDATIONS:
It is respectfully recommended that the General Purpose and Administration Committee recommend to
Council the following:
1. THAT Report PSD-128-07 be received;
2. THAT the report entitled "Regional Cycling Plan Study" be received by Clarington Council; and
subject to appropriate revisions as addressed by the comments in Sections 2.4.4, 2.5.2, 2.5.3
and 2.5.4 contained in the Report, be endorsed in principle;
3. THAT the Regional Development Charges By-law be amended to include a line item for funding
critical connections in the Regional Cycling Plan;
4. THAT the Ministries of Public Infrastructure Renewal and Transportation be requested to
coordinate a Southern Ontario Cycling Task Force and assist in the funding of Cycling Plans;
5. THAT Staff be authorized to work with the Region and Durham Region Area Municipalities to
establish a reasonable and fiscally responsible Regional Cycling Implementation Plan that
integrates with existing and anticipated future cycling and road facilities; and
6. THAT all interested parties listed in this report and any delegations be advised of Council's
decision.
Submitted by:
Reviewed by:
;) ~ ~'CJJ-&..
Franklin Wu,
Chief Administrative Officer
FL*DJC*sn*df
31 October 2007
CORPORATION OF THE MUNICIPALITY OF CLARINGTON
40 TEMPERANCE STREET, BOWMANVILLE, ONTARIO L 1C 3A6 T (905)623-3379 F (905)623-0830
REPORT NO.: PSD-128-07
PAGE 2
1.0 BACKGROUND
1.1 On June 20, 2007, Regional Council endorsed the Joint Commissioners' Report on
the Status of the Regional Cycling Plan Study. The Report estimated the cost of
implementing a Regional Cycling Network to be $103 million. While the allocation of
the funding would be split between the Region and Area Municipalities, the report
concludes that a business case analysis is required to determine the financing of the
Plan in light of the Region's budgetary constraints. The purpose of this report is to
provide the Region with Clarington's position on the Regional Cycling Plan and
suggest priorities and financing options for the Plan.
1.2 Section 3.2.3 of the Region's Transportation Master Plan (TMP) identifies that cycling
and walking are sustainable and environmentally friendly modes of transportation.
The TMP recommends the development of a Regional Bicycle Plan to strengthen local
municipal cycling initiatives while providing the appropriate treatment of bicycle
facilities within the Regional road network. Examples given in the TMP for the Region
to consider include continuing to provide gravel shoulders on rural roads to improve
pavement deterioration and to provide safer buffers for cyclists.
1.3 Clarington's Official Plan sets out in Section 19.10 the objective to:
"...develop an interconnected system of cycling and walking routes providing
access to major activity and employment centres.
In order to plan for and encourage walking and cycling, the Municipality will:
a) consider the provision of safe and convenient cycling and walking routes in the
review of all new development and redevelopment applications;
b) investigate and provide for bicycle lanes wherever possible in the construction or
reconstruction of roads and bridges;
c) encourage and support measures which will provide for barrier-free design of
pedestrian facilities;
d) require the provision of bicycle stands as a condition of approval of site plan
applications;
e) provide bicycle stands in downtown areas in Bowmanville, Newcastle Village and
Orono, major parks and community facilities; and
f) provide recreational trails in accordance with Section 4 and 18 of this Plan."
1.4 The Region retained Marshall Macklin Monaghan to undertake the Regional Cycling
Plan Study in December 2004. The objective for the Study is to look at the cycling
connectivity across the Region rather than local connections. The Study is divided
into the following elements:
REPORT NO.: PSD-128-07
PAGE 3
. Examination of the existing and latent (potential) demand for cycling within the
Region;
. Development of a vision for cycling in Durham Region;
. Opportunities for a continuous cycling network in both urban and rural areas
building on existing local off-road cycling system;
. Establishment of appropriate policies and guidelines for a Regional cycling
network;
. Recommended Regional Cycling Plan; and
. Development of a long term implementation strategy, including the analysis of
financial, legal and risk management implications.
1.5 A Regional Cycling Plan is intended to reflect the Region's commitment to establish an
integrated and accessible Region-wide network of on and off-road cycling facilities that
encourage Durham residents to cycle more often for both utilitarian and recreational
purposes. A Regional Cycling Plan is a critical component of the overall Durham
Transportation Master Plan.
1.6 Today the Region manages approximately 1.3 kilometres (km) of the 90 km of bicycle
routes in Durham Region. Clarington manages 27 km of bicycle routes, the greatest
distance by any of the lower tier Municipalities, Ajax is second with 22 km. As a first
priority for implementation the Region must establish what role it should assume in
implementation to best assist the local municipalities that have already been
implementing physical works to address the needs of cyclists for sometime.
2.0 DISCUSSION
2.1 Existing and Latent Demand for Cycling
2.1.1 The need and justification for the Regional Cycling Plan is contained in the TMP and
confirmed by public opinion surveys initiated by the Region, which substantiate that
there is both an existing and latent demand for a Regional cycling network for on and
off-road bicycle facilities. These surveys were undertaken by Decima Research Inc.
throughout the Region in February 2005 and included 637 computer-assisted
telephone interviews throughout the eight Durham municipalities. The survey
identified the following:
. 44% classified themselves as cyclists (18% as utilitarian cyclists and 26% as
recreational cyclists); 1
. There are approximately 70,000 utilitarian cyclists and 102,000 recreational
cyclists in Durham Region;
1 Utilitarian cyclists are those who use a bicycle to travel to and from work or school, shopping, running errands
and visiting people. Recreational cyclists are those who use a bicycle for recreational or fitness purposes.
REPORT NO.: PSD-128-07
PAGE 4
. Utilitarian cyclists cycle to work approximately three days per week, whereas
recreational cyclists cycle less than two days per week;
. There are more utilitarian cyclists in Ajax, Scugog and Brock than in other
municipalities in Durham Region;
. Residents of Ajax and Whitby have the most favourable perceptions of the
Region's cycling routes;
. Recreational cyclists are more concerned with "careless or aggressive drivers"
while utilitarian cyclists are concerned that there are not enough on-road bicycle
facilities;
. Of those surveyed, 51 % indicated that increasing the number of on and off-road
bicycle facilities (bike lanes or paved shoulders) would improve the conditions for
cycling in Durham Region; and
. Approximately 40% of adults stated they would use new on-road bicycle lanes
provided by the Region.
The Region remarked that the "survey confirmed that a Regional Cycling Plan which
addresses the issues and concerns raised by Durham residents and also promotes
cycling as a healthy, active and feasible mode of transportation within the Region, is a
timely and very useful undertaking2". The survey results helped develop the direction of
the Study. While the Region acknowledged there are transportation, health and
environmental benefits to cycling, it also identified there were a number of deficiencies
within the existing network in the Region.
2.2 Vision for Cycling in Durham Region
2.2.1 A draft "Vision" for cycling in Durham Region was announced to the public by the
Region in its first issue of the Regional Cycling Plan Newsletter. It outlines a
commitment to a cycling plan that serves both residents and non-residents, and
captures the importance of a plan that deals with both the infrastructure as well as
educating residents:
"A Region-wide, visible and connected network of on and off-road cycling
routes and facilities that is actively used by all types of cyclists is in place.
The network is designed to connect, at a Regional scale, local cities,
towns, village, hamlets as well as key attractions and destinations. The
network is supported by various programs, policies and strategies that
help to promote cycling as an alternative mode of transportation to private
automobiles, especially for trips less than 5 km, and serve to educate
cyclists on safe and appropriate cycling techniques and the rules of the
road."
2.2.2 The purpose of a vision is to provide the framework for the study. The draft vision
indicates a commitment to a Regional cycling network that is connected and supports
2 Regional Cycling Plan, Newsletter NO.1 April 2005, page 2
REPORT NO.: PSD-128-07
PAGE 5
both utilitarian and recreational cyclists. This vision is consistent with the Town's
Vision 2020 and Strategic Plan objectives.
2.3 Identification Of Barriers
2.3.1 Prior to the development of a Regional Cycling Plan, the Consultant Team analyzed
the barriers in the existing network. Through the composition of local municipal
cycling plans (Le., for Pickering, Ajax, Oshawa), natural heritage areas, school
catchment areas and recreational trail maps, the Region compiled several maps
outlining the existing regional network. The following barriers to cycling were
identified.
. 400 series highways and major Arterial roads;
. Rail corridors;
. High traffic roadways and on-street parking;
. Poor bicycle storage at transit stations and major destinations;
. Ravines and wetlands;
. Poor separation of pedestrian and cyclists on multi-use trails;
. Lack of connectivity between cycling routes; and
. Inadequate space for cyclists when sharing the travel lane with either motorists or
pedestrians.
2.3.2 Critical intersections and disconnected portions of the existing cycling network that
present a barrier to cyclists were not identified as part of this Study. It is staffs view
the Region's efforts are best spent in rectifying critical barriers as a way to make better
joint use of local cycling facilities.
2.4 A Recommended Regional Cycling Network
2.4.1 The Region identified several classes of bicycle facilities to reside on both the
Regional and the area municipal road system. These facilities include:
. A bicycle lane (1.5 metres from edge of curb) - this is a lane dedicated to bicycles
for each travel direction;
. Paved shoulder bikeways - this is the use of the paved shoulder on a rural road
which is dedicated for the cyclist;
. Multi-use trails - are facilities that are outside of the travelled roadway and are
designed to accommodate both the pedestrian and/or the cyclist; and
. Signed-only route - this is a bicycle route where cyclists share the travel portion of
the road with other vehicles.
REPORT NO.: PSD-128-07
PAGE 6
2.4.2 The method used to determine the route selection is based on an inventory of existing
conditions and a set of both qualitative and quantitative criteria. The Consultant Team
recommended a two tier system for the Regional Cycling Plan; a primary spine and a
community spine. The primary spine provides a utilitarian connection between urban
centres, focusing on linking employment, major shopping centres, residential and tourist
nodes. The community spine would reside on local roads and links existing and future
multi-use trail systems to the primary spine.
2.4.3 The Region recommended bike lanes on approximately 21 regional roads and 5
municipal roads throughout Durham Region. Of the more than 40 signed-only routes
identified by the Region, approximately 25% are identified on regional roads. Paved
shoulder bikeways are identified on lower volume rural roadways and multi-use trails
are identified on roadways in close proximity to existing multi-use trail connections. A
continuous trail is identified in a number of Hydro One corridors. The proposed facilities
are identified as Figure A8 (Attachment 1).
2.4.4 In Clarington, the hydro corridor lands identified as a north-south multi-use trail (parallel
to Holt Road) and east-west (parallel to 8th Concession from Enfield west to Townline)
are not appropriate long-term routes. The routes along the 407 corridor and line will
serve this purpose and will be contiguous. In addition, the hydro corridor lands are
actively farmed and in agricultural production. Clarington Staff has recommended to the
Region to remove this identified route from both the Regional Cycling Plan and the
Regional Trails Masterplan. When Clarington prepared their submission to the Ontario
Realty Corp. about the Proposed Future Secondary Uses of Hyrdo Corridor Lands we
did not indicate this route as a future use (Attachment 2, which is Attachment 3 from
PSD-011-05).
2.5 Development of a Long-Term Implementation Strategy
2.5.1 The Consultant Team proposed that the Plan would be implemented over the next 25
years. Phase 1 would occur between the years 2008 and 2012 and Phase 2 would
occur between the years 2013 and 2032. Under Phase 1, or the short-term strategy,
the focus for the Region is to build on the existing network, prioritizing on connecting
major east-west and north-south links. Projects would therefore be scheduled with
planned regional or local road improvements. Proposed signed-only routes would be
implemented under this phase, and where a higher class of bicycle facility such as a
bicycle lane would be planned for Phase 2, a signed-only route would be used as an
interim facility. The major projects requiring road widening or property acquisition would
be achieved during Phase 2.
2.5.2 For Clarington the majority of the works recommended in Phase 1 (2008-2012) consist
of development of the Oak Ridges Moraine Trail as it passes through the Ganaraska
Forest as a multi-use trail. Due to the principles adopted by the ORM Trail and the
terrain that the trail takes the costing assumption that this trail can be developed as a 10
foot wide asphalt multi-purpose trail is inappropriate and should be re-estimated using
an appropriate design detail.
2.5.3 The other Phase 1 recommendations for Clarington consist of signage along existing
roads. The Operations Department in their review of the recommended routes have
REPORT NO.: PSD-128-07 PAGE 7
advised that some of the recommended roads already have deteriorating edges and
should be evaluated prior to any signage being installed. This brings up the question of
liability and whether the Region will indemnify the local municipality for the portions of
roads that are signed as Regional Cycling Facilities should any claim be successful.
2.5.4 The implementation of the Regional Cycling plan would be coordinated through a multi
disciplinary working committee comprised of Regional staff from various departments
including Works, Planning and Finance. The role of the working committee would be to
monitor and recommend direction on issues that would arise through the
implementation process. Since the Plan is a work in progress, the working committee
would make appropriate adjustments to the Plan to integrate projects within the scope
of future regional and local capital initiatives. An annual report card on the state of the
Regional Cycling Plan would also be the responsibility of the working committee. Area
Municipalities would be given an opportunity to participate through the establishment of
an inter-municipal cycling working group.
2.5.5 It is anticipated that much of the Regional Cycling Plan would be incorporated within
proposed capital road projects. Funding the Plan will require that the Region use
Development Charges (DC), general levy and a portion of the federal/provincial gas tax.
The Consultant Team recommends that the Regional DC By-law be amended to include
a line item for road improvements related to alternative transportation modes such as
transit and cycling. Further, a significant amount of bicycle facilities for new collector or
local roads are proposed to be developer funded. While the Consultant Team
suggested that the Region pursue additional funding sources including the Federal
Government's Transportation Showcase Program and the Ontario Trillium Foundation, it
is uncertain that the Region or Area Municipalities would qualify for these grants given
the significant population in the Region and that many of the awards in recent years
have gone to transit related projects.
2.6 Priorities and Goal Setting
2.6.1 The Regional Cycling Plan falls within the context of the vision, goals and objectives
outlined in the Region's TMP which expresses the need to provide more travel choices.
The Plan serves to support the framework of the Region's Transportation Demand
management (TDM) initiative by providing the planning for the necessary bicycle
infrastructure to move cyclists across the Region. The Plan also provides the basis to
influence sustainable land use development.
2.6.2 To date, the planning, design, funding and implementation of bicycle facilities and trails
are the sole responsibility of lower tier municipalities. As a result, the lack of
coordination at the regional level has resulted in a regional bicycle network that has
been developed in an ad hoc fashion with little cross regional connectivity. The
primary role of the Region, therefore, should be to plan, design and coordinate
the connections between one municipality and another. The implementation of the
plan would then fall under the jurisdiction of the Area Municipalities. As the champion of
the Plan, the Region would cost share in the development of critical links within rural
areas where funding sources would not be available. Staff would envision the Region's
role as champion of the cycling plan to cover the following areas:
REPORT NO.: PSD-128-07
PAGE 8
Plannina
The first objective in route planning is to select routes that provide:
i) cross regional connectivity;
ii) are relatively easy to implement; and
iii) that uses existing infrastructure and can provide links to existing off-road trails.
This level of planning therefore, identifies a short-term network (between 2008 and
2012). Staff recommend that the Region simplify its Plan by meeting with each area
municipality to work through what is feasible within each municipality and working on
inter-connection of the existing cycling facilities across the Region. The short term
priorities would serve as a pilot to test whether the Region should coordinate a Regional
Cycling Plan and what barriers both physical and otherwise exist to the Plan.
Therefore, short-term incremental steps that are consistent with a long-term direction
would represent the most effective use of scarce financial resources.
Desian
In coordination with Area Municipalities, the Region should lead the detailed design for
the proposed bicycle facilities. The funding for the detailed design would be the
responsibility of the Region. It is important that local issues are considered within the
detailed design for facilities that are on municipal roads. Staff suggest that the Region
would be responsible for the coordination of background information, road geometry,
signal timings and collision data pertinent for the design of the facility. Wherever
possible the detailed design would be done in conjunction with planned road
improvements and included within the Municipal Class Environmental Assessment
process. Public consultation would be required as part of the detailed design process.
The final approval of the design would be through Regional Council and the Councils of
the affected Area Municipalities.
Fundina
The success of the Regional Cycling Plan is dependent on a cooperative relationship
between the Region and Area Municipalities. Within urban areas it would be anticipated
that Area Municipalities would be responsible for implementing the plan (i.e.
construction and funding). In rural areas, where development is not identified in the
Regional and local Official Plans, the Region should assist in the implementation of
bicycle facilities.
It is critical to the success of the Plan, that the Area MuniCipalities and the Region begin
to identify the Regional Cycling Plan in capital budget and Official Plan documents for
the future development of the cycling network. Since the Region should be the primary
coordinator of the Plan, Regional staff should facilitate the planning, design and draft an
implementation schedule to the Plan for consideration by Regional Council.
REPORT NO.: PSD-128-07
PAGE 9
Summary
While municipalities such as Clarington continue to implement their bicycle and trails
plan, there remains missing links within the network. Regional coordination is required
to provide much needed connections between Area Municipalities. This coordination
can be achieved through identifying short-term achievable connections. Providing a line
item for the cycling improvements in the Region's Development Charges By-law will
assist in funding. However, it is clear that further investigation is required in order to
explore additional funding sources.
.# 3.0 CONCLUSION
3.1 Since there are over 150,000 cyclists in Durham Region, implementing a Regional
Cycling Plan provides residents with the opportunity to access a sustainable and
efficient mode of transportation. The priority for the Region should be to strengthen
connectivity between Area Municipalities. It is the role of the Region to champion the
Regional Cycling Plan through coordinating the planning, design and implementation of
the Plan. Clarington Staff will continue to work with the Region in its efforts to prioritize
critical links within the Regional Cycling Plan.
3.2 This report has been reviewed by the Directors of Engineering, Operations and Finance,
who concur with its contents.
Attachments:
Attachment 1 - Figure A8 from Regional Cycling Plan (Clarington)
Attachment 2 - Table 2: Proposed Future Secondary Uses of Hydro Corridor Lands
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