HomeMy WebLinkAboutPSD-128-07 Addendum
UNFINISHED BUSINESS
Clw:inglOn
REPORT
PLANNING SERVICES
Date:
GENERAL PURPOSE AND ADMINISTRATION COMMITTEE ::1:\
'J \ \. .6Piff-&Hg-07
Monday, November 19, 2007 '1'\..c~iL\nCY'
Meeting:
Report #: Addendum to 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 Addendum to PSD-128-07, PSD-128-07 and the "Durham Regional Cycling Plan
Study" be received;
2. THAT the Regional Cycling Plan be endorsed in principle as a basis for planning only
on the understanding that Clarington is making no financial commitment to the
implementation of the Study at this time and subject to the following revisions:
a) That the multi-use trails identified for the Ontario Hydro corridors parallel to
Holt Road and Concession Road 7 be deleted (2.4.4 of Report PSD-128-07);
b) That the multi-use 3m paved trail comprising part of the Oak Ridges Moraine
Trail is an inappropriate design, an appropriate non-paved design standard
for the Oak Ridges Moraine Trail should be considered a Regional
responsibility (modification of Section 2.5.2 of Report PSD-128-07);
c) That due to deteriorating edges on many roads, any signed routes should be
thoroughly reviewed prior to signs being installed and that the Region of
Durham indemnify the Municipality of Clarington for any insurance claims
(Section 2.5.3 of Report PSD-128-07);
d) That a multi-disciplinary committee, comprising representatives of municipal
and Regional Departments be established for implementation of any Cycling
Plan (Section 2.5.4 of Report PSD-128-07);
REPORT NO.: ADDENDUM TO PSD-128-07
PAGE 2
e) That the Region's role should focus on planning, designing and co-ordinating
connections between municipalities, establishing design standards, cost-
sharing in municipal initiatives for urban areas and taking the lead in
designing and implementing cycling initiatives in rural areas (Section 2.6.2 of
Report PSD-128-08).
3. That the Region of Durham be advised that the Municipality's priority is the
establishment of off-road multi-use trails in urban areas and along the waterfront and
that there are limited Municipal funds to implement Clarington's existing priorities;
4. That the Regional Development Charges By-law be amended to include a line item
implementing the Regional Cycling Plan;
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 the existing and anticipated future cycling and
road facilities; and
6. That the Region of Durham and any delegation be advised of Council's decision.
Submitted by:
Davi . Crome, M.C.I.P., R.P.P.
Director of Planning Services
Reviewed by:
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ranklin Wu,
Chief Administrative Officer
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FL *DJC*sn*df
8 November 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.: ADDENDUM TO PSD-128-07
PAGE 3
1.0 BACKGROUND
1.1 On November 5, 2007 Committee reviewed the Staff Report PSD-128-07 (Attachment
1) on the Regional Cycling Plan Study and referred it back to staff for additional
information on the recommended routes within Clarington and associated costs.
1.2 Regional Staff initially reported to Finance, Planning and Works Committee in June,
2007, this initial report recommended that the Durham Region Cycling Plan and
Report No. 2007-J-23 (Attachment 2) be forwarded to each of the Area Municipalities
for information. However, on the floor the recommendation was amended and the
report was referred to Area Municipalities for "comment on the plan and plan
implementation including priorities and financing options..." A further report (2007-J-
38) extended the deadline for comments.
1.3 Regional Council in referring the plan to the Area Municipalities was responding to the
estimated cost of implementation of approximately $103 million with $45 million being
the Region's share. Clarington's estimated share was $4 million. However, in PSD-
128-07 staff indicated that the multi-use trail costs for the hydro corridor and the Oak
Ridges Moraine trail are not items that would be supported, they account more than
$3.5 million of Clarington's total cost. They have been deleted from the program
proposed by the Region as contained in Attachment 3.
1.4 The remainder of the works to be carried out in Clarington are items that could be
implemented in the on-going program for road improvements over the 25 year
implementation scheme. For detail on Clarington's routes and costs see Attachment
3.
1.5 The major concerns from Staff are the implementation timing of the signed-only routes
given the comments included in Section 2.5.3 by the Operations Department
regarding the conditions of the deteriorating pavement edges. In addition, regardless
of the Region's desires to have all the "signed-only" routes implemented in the first 5
years of the program, the estimated cost of $218,955 ($44,000 per annum) for
signage only by Clarington would be subject to Council approval at budget time. This
would introduce a new program for the Municipality at a time when the Municipality is
trying to maintain existing levels of service for other programs.
2.0 COMMENTS
2.1 Committee provided comment that the recommended routes should not be on
Regional Roads as there could be greater conflict between motorists and cyclists.
However, as this is a Regional Cycling Study, it is appropriate that some routes be
implemented on Regional Roads since they have control over these facilities.
Otherwise, funding should be made available for local road improvements to
accommodate cycling for a regional utilitarian and recreational transportation system.
REPORT NO.: ADDENDUM TO PSD-128-07
PAGE 4
2.2 Committee was also concerned that endorsing the Regional Cycling Plan would
detract from the implementation of local priorities for trail development and cycling.
However, the Municipality will continue to implement its own priorities as per the
recommendations contained in the yearly budgets. This has been clarified in the
amended recommendation.
2.3 Committee has some discussion regarding encouraging cycling by providing bicycle
racks. The Commercial Policy Review amended the parking provisions of the Zoning
By-law to require that every commercial building provide bicycle racks. For
establishments greater than 5,000 sq. metres, long-term indoor bicycle parking rooms
for employees is required. In future projects in the BIA areas or around municipal
facilities, Council could consider improving bicycle parking.
2.4 When the Engineering Services Department is considering redevelopment of a road or
facility, cycling considerations could be included. As an example, the redevelopment
of the King Street Bridge in Bowmanville includes additional width on the outer lane to
accommodate cyclists. While the additional width is not sufficient for a bike lane (due
to the existing width of the road platform) it will provide additional width for cyclists
who choose to ride on the road surface in the outer lane.
2.5 To date, the Municipality has not prepared its own Cycling Plan or Recreational Trails
Plan. This could be included in any Transportation Master Plan prepared in
conjunction with the Official Plan Review.
2.6 To date, the Region has had very limited if any involvement in the development of the
Oak Ridges Moraine Trail, Waterfront Regeneration Trail and other region wide trail
and cycling facilities. It now appears that the Region would like to acknowledge these
Regional routes as they are tourism destinations and facilities and further enhance
them by providing interconnecting routes that lead to them. Regional involvement in
land acquisition and construction for the missing section of these trails would be
beneficial. It is noted that in 2006, Council passed Resolution C-283-06 requesting
that the Region to construct a portion of the Waterfront Trail as part of the Courtice
Water Pollution Control Plant (Attachment 4). This matter was referred to the
Regional Trails Committee but there has been no response to date.
3.0 CONCLUSION
3.1 Report PSD-128-07 recommended that Council endorse, in principle, the Durham
Region Cycling Plan as it meets the Regions goals as set out in their Transportation
Master Plan and Official Plan and also reflects the goals and policies of Clarington's
Official Plan. The recommendations included proposed revisions to that Plan that
significantly reduced Clarington's share of the funding and dealt with implementation
steps, roles and responsibilities and future funding. These recommendations have
been clarified in the Addendum Report.
REPORT NO.: ADDENDUM TO PSD-128-07
PAGE 5
3.2 Alternatively, if Council does not believe the Durham Regional Cycling Plan should be
endorsed in principle until further detail is included on funding and implementation or
that the routes should be re-examined to remove them from Regional Roads, Council
could pass this alternate resolution:
1. THAT Addendum to Report PSD-128-07, Report PSD-128-07 and the
"Durham Regional Cycling Plan Study" be received;
2. That the Durham Region Cycling Plan be referred back to Regional Staff
for additional work.
Attachments:
Attachment 1 - PSD-128-07
Attachment 2 - Regional Report 2007-J-23
Attachment 3 - Chart-Regional Cycling Plan-Routes by Facility Type, Phase and Costs
Attachment 4 - Resolution C-283-06
,
Attachment 1
To Addendum Report PSD-128-07
CI~mgron
REPORT
PLANNING SERVICES
Meeting:
GENERAL PURPOSE AND ADMINISTRATION COMMITTEE
Date:
Monday, November 5, 2007
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:
;) ~tS2 3:.~
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 3AG 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 (Le.
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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Attachment 2
To Addendum Report PSD-128-07
The Regional Municipality of Durham
To: The Planning, Works and Finance Committees
From: Commissioners of Planning, Works and Finance
Report No.: 2007-J-23
Date: June 12, 2007
SUBJECT:
Status of Regional Cycling Plan Study - File: D21-32
RECOMMENDATIONS:
a) THAT Commissioners' Report No. 2007-J-23 be received for information; and
b ) THAT Commissioners' Report No. 2007 -J-23 be forwarded to each of the
Area Municipalities for information.
REPORT:
1. BACKGROUND AND PURPOSE
1.1 On December 13, 2003, Regional Council resolved that "the Transportation
Master Plan, dated October 2003 be approved" and that "the Transportation
Master Plan recommendations requiring program or project specific financing
be addressed through the annual Roads Servicing and Financing Study and
appropriate business and budget process."
1.2 Recommended Action 10 of the Durham Transportation Master Plan (TMP,
2003) provides for the development of a Regional Cycling Plan that:
. "Focuses activity on the Local Municipal road and path systems;
. Connects the Local Municipal bicycle systems together;
. Integrates with other modes of transportation, especially walking and
transit;
. Considers the need for bicycle facilities within Regional road corridors;
. Identifies facilities that may be required on the Provincial Highway network
to achieve network continuity, which may be subject to municipal funding;
and
Report No.: 2007-J-23
Page NO.2
. Defines an implementation strategy, identifying public education and
marketing initiatives, costs, financing sources and responsibilities."
1.3 Pursuant to the 2004 Budget approval of the project, in December 2004, the
Region retained Marshall Macklin Monaghan ("consultant") to undertake the
Regional Cycling Plan Study. Joint Committee previously considered this
study through a project initiation report in December 2004 (2004-J-38), and a
status update in June 2005 (2005-J-13). The purpose of this report is to:
. provide a summary of the preliminary findings of the Regional Cycling
Plan Study;
. provide an assessment of the potential financial and risk implications;
. consider the next steps in analysis required for any implementation,
including refinement of the financing considerations; and
. outline the next steps for prioritizing the findings, within the broader
context of other Regional initiatives which require financial and staff
resources.
2. STUDY FINDINGS
2.1 Over the past two years, the Regional Cycling Plan Study has been
undertaken with stakeholder consultations, involving:
. Public Opinion Surveys, conducted in February 2005;
. Publication of periodic newsletters to outline the study's findings and
progress, and to provide opportunities for stakeholder comments and
feedback (April 2005, August 2005, February 2006);
. Workshop with the Municipal Advisory Committee and Other Stakeholders
(May 2005); and
. Dissemination of study information through the Region's website
(www.reoion.durham.on.ca/cyclino ).
The study findings generated by the consultant have resulted in a better
sense of the implications of implementing a cycling program in Durham.
2.2 The first step of the study was to determine the existing and latent demand for
cycling through a public opinion survey. A total of 637 interviews, of both
Report No.: 2007-J-23
Page NO.3
cyclists and non-cyclists, were completed. Key findings from the survey
include:
. Cycling is a common mode of transportation and form of recreation for
Durham Region residents. Approximately 44% of respondents over the
age of 15 are cyclists, and approximately 63% of households own at least
one bicycle;
. Approximately 70,000 of the Regional adult cycling population are
utilitarian cyclists (Le. who ride to get to work, school, go shopping, run
errands or go visiting), and about 160,000 are recreational cyclists;
. Approximately half of the respondents indicated that "more on or off-street
bike lanes, trails or paved shoulders" is the one top of mind change that
would improve cycling in the Region;
. Three in ten cyclists who do not currently combine cycling and transit said
they would, if there was secure parking at key public transit stops or bike
racks attached to buses;
. Sixty-one percent of respondents with children who cycle, indicated that
they definitely, or probably would enrol their children in a course teaching
safe cycling skills; and
. There is a need to raise motorists' awareness of cyclists, especially during
peak times (morning, afternoon and evening rush) when activity is at its
highest.
2.3 With the completion of the public opinion survey, the following considerations
emerged to set the context for the development of a Regional Cycling Plan:
. A variety of transportation, environmental and economic benefits can be
derived from cycling;
. A number of physical barriers to cycling in Durham Region are evident,
(eg. discontinuous cycling routes, lack of secure parking facilities, lack of
workplace amenities for cyclists);
. A coordinated region-wide planning effort could be undertaken to
implement cycling initiatives across Durham, although there are a number
of Provincial, Regional and Municipal policies impacting cycling such as
those contained within the Planning Act, Municipal Act, Highway Traffic
Act, Community Strategic Plan, Regional Official Plan, Transportation
Master Plan, Area Municipal Official Plans and CyclingfTrail Plans; and
Report No.: 2007-J-23
Page NO.4
. A variety of best practices is available for the implementation of cycling
infrastructure including pavement markings, signage, bicycle parking and
highway interchange crossings, which could be adapted to a Durham
Region context.
2.4 The consultant's background work also suggested that the development and
implementation of a Regional Cycling Plan should be based on the following
concepts:
. Build upon existing area municipal cycling initiatives by connecting and
expanding existing facilities in the Region to establish a complete,
integrated and readily accessible Region-wide network serving both urban
and rural areas;
. Encourage more people to cycle more often for both utilitarian and
recreational/fitness purposes; and
. Make the conditions for cycling safer for cyclists of all skill and age levels
by providing effective on and off-road cycling facilities, while promoting
cycling as an active, healthy lifestyle and also educating motorists on safe
operating practices.
2.5 During the summer of 2005, based on extensive field work, consultation with
Area Municipalities and the public, and a review of best practices, the
consultant prepared a draft Regional Cycling Network. The draft network was
released for comments in the February 2006 study newsletter.
2.6 During February and March 2006, a series of Public Open Houses were held
in each of the area municipalities to gain input on the draft network and the
course of the study. The open houses were coordinated with the efforts of
the Durham Trails Coordinating Committee (DTCC). In total, 107 public
participants attended these events.
2.7 Following the Public Open Houses, the consultant re-evaluated the draft
network, and prepared a draft report for Regional staff review. The draft
report presents:
Report No.: 2007-J-23
Page NO.5
. An overview of the existing cycling demand and conditions within the
Region;
. A cycling vision for the Region, as well as goals and objectives to help
achieve this vision;
. Suggested cycling related policies, programs, planning and design
guidelines;
. A recommended Regional Cycling Network (Attachment 1) in the urban
and rural areas of the Region, which integrates and enhances the existing
on and off-road cycling networks developed by local municipalities; and
. A long-term implementation strategy for the recommended network and
program.
As such, the consultant has completed the assignment in accordance with the
terms of reference for the study.
2.8 The consultant has estimated the cost of implementation for the Regional
Cycling Network to be approximately $103 million. Based on jurisdiction, the
Region's share of the implementation cost is estimated at $45 million. The
balance of $58 million would be allocated to the Area Municipalities, the
Province of Ontario, Conservation Authorities, external agencies,
hydro/railway agencies and private bodies. It is noted that the cost estimate
includes provisions for construction - i.e. road widening for bike lanes, paved
shoulders, trail development and signage. The estimate, however, does not
include costs for property acquisition, utility relocation, or roadside drainage
works, that can be determined only through detailed design.
2.9 The consultant's draft report was not circulated for public or agency comment
due to:
. the large extent of the cycling network identified by the consultant, and
consequently very significant resources required to implement;
. unresolved risk management issues related to the operation of such a
network;
. undefined program resources (e.g. region-wide staffing implications and
public education resources) for certain elements; and
. concerns with the feasibility and legality related to some of the financing
opportunities suggested by the consultant (e.g. development charge
Report No.: 2007-J-23
Page NO.6
eligibility for cycling infrastructure and other Federal-Provincial grant
programs).
2.10 Given the significant scale of the potential project, it would not be prudent to
expend additional consulting resources to have the study further refined to
address the above concerns. Rather, the consultant's study will provide
technical input and background for future work if Regional Council wishes to
proceed. Any further consideration of the Regional Cycling Plan Study will
first require a Cycling Business Case and further financial and risk analysis to
be undertaken, by prioritizing the relating capijal expenditures within the
context of the broader range of initiatives to which the Region is financially
committed.
3. FINANCIAL AND RISK IMPLICATIONS
3.1 The development of a Regional Cycling Network Plan and Implementation
Strategy must be considered within the context of the current and future cost
pressures facing competing Regional transportation priorities and potential
property tax increases required to accommodate the Region's Transportation
programs.
ReQional Roads ProQram
3.2 Future road expansion projects for the Regional Roads Program continue to
pose significant challenges. The 2008 - 2011 forecast period includes a
number of projects that require significant development charge and property
tax funding, in which the former will incur a shortfall in revenue over the
forecast period. These projects also have a significant property tax funding
component, which is financed through the Special Roads Levy. The Special
Roads Levy, which funds growth-related capital projects, requires increases
in future years to address the residential and non-residential growth in the
Region. The allocation in the 2007 Regional Business Plans and Budgets for
the Special Roads Levy is $10.7 million and will need to increase by
approximately $3.0 million over the next three years in order to allow growth-
related capital projects to proceed, like the widening of Brock Road in the City
of Pickering and the widening of Bayly Street in the Towns of Whitby and
Ajax.
Report No.: 2007-J-23
Page NO.7
3.3 In addition, with respect to the Regional Roads Rehabilitation Program,
further increases in the Roads Rehabilitation Levy are required in order to
maintain current conditions. The funds allocated in the 2007 Regional
Business Plans and Budgets for the Roads Rehabilitation Levy is $9.0 million
and needs to increase by a further $5.0 million in future years to bring the
Rehabilitation Road Program to a level that will maintain the current condition
of the road network.
Durham ReQion Transit
3.4 The amalgamation of local municipal transit services, resulting in the
establishment of Durham Region Transit on January 1, 2006, has introduced
a number of financing challenges for the Region, including fleet replacement
and improvements to existing service levels for the 2008 to 2011 forecast
period. For example, in order to advance the implementation of the 5-Year
Transit Service Strategy, Regional Staff developed the "Connecting
Communities - Moving Ahead to BRT" plan, which was largely aimed at
dramatically increasing route coverage, service levels, span of service and
ridership on key corridors within the Region. The total estimated capital costs
of implementing the plan are $175 million over the next 5 years or $226
million over the next 24 years. Although the Region is seeking a tri-party
funding partnership between the Region, Province and Federal Government,
this plan, if fully implemented, would require a Regional commitment of $53.5
million. The Region would also be required to finance the full property costs
on its own, estimated at $15 million, bringing the Region's total capital cost
requirement to $68.5 million over the next five years.
3.5 The proposed Capital Expenditure Program for Durham Region Transit over
the forecast period (2008-2011) totals $105.2 million and is comprised of:
. A total of 48 expansion vehicles ($18.8 million), 70 replacement vehicles
($21.2 million) and refurbishment of 28 buses and engine rebuilds ($7.0
million);
. $42 million for the rehabilitation/expansion of Durham East and for a new
facility for North Durham and supporting equipment;
. $4.9 million for the GTA Fare system; and
. $11.3 million for other system improvements.
Report No.: 2007-J-23
Page NO.8
Business Case Analysis
3.6 Given the operating and capital infrastructure costs required for Regional
roads and transit, Regional Council would need to consider the financing
challenges of a potential Regional Cycling initiative, in light of 2008 detailed
budgetary information for Regional Roads and Transit, to determine an
appropriate balance of current and future community needs for Durham.
3.7 Consistent with current Regional Council direction and best business
practices, new capital projects and programs, which are undertaken by
Regional Departments, require capital cost control measures, such as the
establishment of a business case, to ensure benefits to stakeholders by
striving for an appropriate prioritization of taxpayers' dollars and resources. A
business case analysis will be needed prior to any budget or forecast
submission.
This business case needs to provide:
. An analysis of alternatives regarding ongoing costs and responsibilities,
including insurance, risk management, land acquisition, property
management, maintenance, signage, monitoring and life cycle costing of
any Regional infrastructure;
. A fact-based foundation for a decision to either proceed or not proceed
with the capital project;
. Identification of critical success factors to facilitate oversight of the project;
. Identification of business activities that need to be addressed to facilitate
implementation of the project; and,
. A basis for establishing benchmarks for setting project goals, measuring
progress and identifying problem areas.
3.8 As part of the Region's Cycling Business Case, further consideration needs
to be given to Risk Management and Insurance issues to ensure that the
proper standard of care is provided. This increased scope of duty should
include additional inspections, maintenance and improvement of the
Regional roads in the cycling network.
Report No.: 2007-J-23
Page NO.9
4. CONCLUSION
4.1 The consultant has completed the Regional Cycling Plan study assignment in
accordance with the terms of reference. To move forward on the cycling
initiative, a Business Case analysis, including further financial and risk
analysis, will be considered in the 2008 Regional Roads Servicing and
Financing Study, that will be presented during the 2008 Business Planning
and Budget process. Meanwhile, the Region will continue with its outreach
and educational role in terms of health promotion, safe cycling practices, and
Transportation Demand Management.
A. L. Georgieff, M.C.I.P., R.P.P.
Commissioner of Planning
R. J. Clapp, CA
Commissioner of Finance
Clifford Curtis, P. Eng., MBA
Commissioner of Works
RECOMMENDED FOR PRESENTATION TO TRI-COMMITTEE
G.H. Cubitt, M.S.w.
Chief Administrative Officer
MG\2007REPORTS\cycling plan
Attachment #1: Regional Cycling Network recommended by the Consultant
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Attachment 4
To Addendum Report PSD-128-07
Council Meeting Minutes
- 25-
May 29, 2006
AND WHEREAS the main goals of the long Term Waste Management Strategy Plan
is to divert at least 50% of the residential waste by the year 2007;
AND WHEREAS the Wilmot Creek Community is a land lease residential community
with approximately 800 homes and has been excluded in the Region's curbside
program and is able to meet the Region's standards for waste collection:
NOW THEREFORE BE IT RESOLVED that the Region of Durham be requested to
implement an Integrated Residential Waste Management System for the Wilmot
Creek Community as soon as possible.
"CARRIED ON THE
FOllOWING RECORDED VOTE"
Council Member
Councillor Foster
Councillor MacArthur
Councillor Pingle
Councillor Robinson
Councillor Schell
Councillor Trim
Mayor Mutton
Yes
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Declaration of
Pecuniary Interest
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Resolution #C-283-06
Moved by Councillor Schell, seconded by Councillor Trim
WHEREAS the Region of Durham's Trail Coordinating Committee has endorsed the
Draft Trail Network, as amended and are proceeding to the Implementation Strategy
portion of the process;
AND WHEREAS the Region of Durham's Community Strategic Plan sets out the goals
of A3 "Supporting the development of alternative methods of transportation including
waterfront trails and other trail systems" and B7 "Protecting, enhancing and investing
in our waterfronts";
AND WHEREAS the Region's Official Plan under Section 14.3.9 explicitly indicates
that when an environmental impact study is required that the study shall address
"opportunities for the appropriate portions of the subject lands to be included in a
natural corridor system along the waterfront and creek valleys"; and further "Regional
Council shall support the ongoing development of a continuous and coordinated lake
Ontario waterfront trail...";
AND WHEREAS the Proposed Directions of the Regional Official Plan Review further
supports land securement for conservation purposes and the implementation of a
Regional Trail Network;
Council Meeting Minutes
- 26-
May 29, 2006
AND WHEREAS the Region's Environmental Assessment for the Courtice Water
Pollution Control Plant included the concept of and a commitment to the waterfront
trail along the waterfront, including a pedestrian crossing of the railway tracks;
AND WHEREAS the Region's Environmental Assessment for the Additional Water
Supply to Service the Newcastle Urban Area (Newcastle Water Treatment Plant)
included the concept of and commitment to the waterfront trail along the waterfront;
AND WHEREAS the development of the trail and appropriate natural corridor
plantings was not included in the site development plan for the Courtice Water
Treatment Plant;
NOW THEREFORE BE IT RESOLVED THAT THE MUNICIPALITY OF
CLARINGTON request Regional Council to direct staff to make the necessary
provisions for funding in the 2007 capital budget for:
a) construction of, planting of and provision of amenities for the waterfront trail
from Courtice Road to Solina/Osborne Road including provision of a permanent
pedestrian crossing of the railway line;
b) construction of, planting of and provision of amenities for the waterfront trail
across the front of the Port of Newcastle Water Treatment Plant; and
c) provision of the necessary access easements to the Municipality of Clarington
(at no cost) for Clarington's maintenance of the trail,
AND FURTHER, THAT a copy of this resolution be forwarded to Durham Region
Trails Co-ordinating Committee, and the Waterfront Regeneration Trust.
"CARRIED"
BY-LAWS
By-law 2006-119 was distributed as a handout.
Mayor Mutton advised that the tax rate by-law included in the agenda recognizes a tax
rate increase of 1.33 percent compared to 1.39 percent last year.
Resolution #C-284-06
Moved by Councillor MacArthur, seconded by Councillor Foster
THAT leave be granted to introduce By-laws 2006-092, and 2006-112 to 2006-119,
inclusive, and that the said by-laws be now read a first and second time:
2006-092
Being a by-law to amend By-law 84-63, the Comprehensive Zoning
By-law for the Corporation of the Municipality of Clarington