HomeMy WebLinkAboutEGD-026-12 Clarftwn REPORT
ENGINEERING DEPARTMENT
Meeting: GENERAL PURPOSE AND ADMINISTRATION COMMITTEE
Date: September 24, 2012 Resolution#: 1 - ' ' By-law#:
Report#: EGD-026-12 File#:
Subject: MUNICIPALITY OF CLARINGTON COMMENTS ON THE 2012 REGIONAL
CYCLING PLAN
RECOMMENDATIONS:
It is respectfully recommended that the General Purpose and Administration Committee
recommend to Council the following:
1. THAT Report EGD-026-12 be received;
2. THAT a copy of this report be forwarded to the Region of Durham with a request
that the Region implement the following comments in the final Regional Cycling
Plan:
i) The Municipality supports the Primary Cycling Network as depicted in the
Region's plan with the following additions:
- Durham Highway 2 from West Townline Road to Regional Road 57,
- King Street East and West from Regional Road 57 to Mearns Avenue,
- Durham Highway 2 from Mearns Avenue to Lambs Road,
- King Avenue East and West from Rudell Road to Arthur Street,
- Durham Highway 2 from Arthur Street to East Townline Road,
- Regional Road 17 from Edward Street to Concession Road 3.
- Future Arterial `B' road between Trulls Road and Courtice Road north of
the CPR.
- Aspen Springs Drive from Green Road to Regional Road 57, and
- Regional Road 57 from Nash Road to Longworth Avenue as requested
by the Beech Street Spinners Cycling Club.
ii) The Region should show the Waterfront Trail on all maps and include this
trail (and all connections to it) as part of the Primary Cycling Network.
iii) The Municipality concurs with the cycling facility types as depicted in the
report. The Primary Cycling Network should include a multi-use path on
one side of Durham Highway 2 between Courtice and Bowmanville where
the speed limit is 80 KPH.
CORPORATION OF THE MUNICIPALITY OF CLARINGTON
40 TEMPERANCE STREET, BOWMANVILLE, ONTARIO L1C 3A6 T 905-623-3379
REPORT NO.: EGD-026-12 PAGE 2
iv) The construction of the Primary Cycling Network should not belied
entirely to the timing of future road construction/reconstruction projects.
v) The Region should clarify the phasing of the construction of the Primary
Cycling Network in Clarington, and the Region should provide a five year
forecast of construction in order for Clarington to coordinate the
construction of secondary routes to ensure connectivity.
vi) The Region should commit to dedicating a fixed sum each year in the
Region's budget to ensure continuous, reliable and sustainable funding for
the construction of the Primary Cycling Network.
vii) The Region should be responsible for 100% of the cost of constructing all
cycling facilities on the Primary Cycling Network.. Subsequently,
Clarington will be responsible for maintaining the facilities on local roads
and;
3. THAT all interested parties listed in Report EGD-026-12 be advised of Council's
decision.
Submitted by: ' Reviewed by:
A.S. Cannella, C.E.T. Franklin Wu,
Director of Engineering Chief Administrative Officer
Services
ASC/LJB/dv
REPORT NO.: EGD-026-12 PAGE 3
1.0 BACKGROUND
1.1 The Region of Durham is currently reviewing its 2008 Regional Cycling Plan.
The original plan provided a Regional road spine where cycling facilities could be
built to serve both urban and rural areas. Since 2008, area municipalities have
requested that the Region review its plan and revise the network to provide a
more functional Region-wide network of cycling facilities on both Regional and
local roads. The Municipality provided comments to the Region regarding its first
draft of the revised plan on October 3, 2011 (see Attachment 1). The comments
at that time confirmed Clarington's commitment to alternative transportation and
its commitment to working with the Region to provide pedestrian and cycling
friendly facilities. Comments were also provided on the proposed routes and
suggested including the Waterfront Trail, connections/links to public transit and
north/south routes for overall improved connectivity. Since that time, the Region
has further engaged local municipalities in developing the final plan. In June
2012, the Joint Finance & Administration, Health & Social Services, Planning and
Economic Development and Works Committee of Durham Region Council
considered the May 24, 2012 Regional Cycling Plan Review report and
recommended that the Plan "be released for public consultation" and that "public
consultation shall include meetings with the local Municipalities, consultation with
key stakeholders [including] the cycling community". The proposed plan was
received by Clarington in June of this year (see Attachment 2 and Attachments 3
and 4 which are extracted from the Region's report).
The final recommendation of Regional Council requested that municipal councils
"comment on the proposed Primary Cycling Network (PCN) and implementation
framework prior to [the week of Oct. 1, 2012]."
1.2 The current proposed plan depicts the PCN throughout the Region including 18.6
kilometers of cycling facilities on Regional roads in Clarington and 34.1
kilometers on local Clarington roads.
1.3 Staff have reviewed the Region's May 2012 plan in consultation with the local
cycling community, and staff recommend that the following issues be considered
and that appropriate recommendations regarding each of these elements be
made to the Region:
i) The appropriateness of the overall PCN in terms of use by recreational
and commuter cyclists and connectivity to destinations including,
particularly, commercial areas, transit, the Waterfront Trail and
recreational centres (see Attachment 3).
ii) The type of cycling facility proposed on each road (see Attachment 4).
iii) The phasing of the implementation of the PCN.
iv) The funding of the implementation of the PCN.
REPORT NO.: EGD-026-12 PAGE 4
v) The commitment of the Region to provide continuous sustainable funding
for the implementation of the Regional Cycling Plan.
2.0 DISCUSSION OF ELEMENTS OF THE PLAN
2.1 Appropriateness of the Primary Cycling Network
Staff (with input from the local cycling community) concur with the PCN as
depicted in the Region's plan subject to the addition of the following routes (see
Attachment 5):
• Regional Highway 2, King Street East and West and King Avenue East
and West from West Townline Road to East Townline Road This route
should remain in the PCN since it links Clarington's three southern urban
communities. The inclusion of Regional Highway 2 provide for
connectivity to the Waterfront Trail, to the Region's transit system and to
the GO Transit system. The inclusion of these connected roads from
Newcastle to East Townline will also result in a connection to
Northumberland County's Cycling Master Plan which was released in July
2012.
• The future Type `B' arterial road proposed between Trulls Road and
Courtice Road north of the CPR tracks. This will provide cycling access to
the future Courtice GO Transit train station.
• Aspen Springs Drive from Green Road to Regional Road 57. This will
provide access to the future Bowmanville GO Transit train station.
• Regional Road 57 from Nash Road to Longworth Avenue. The Beech
Street Spinners Cycling Club has expressed that this is an important link
in the route that is frequently used by their members.
• Regional Road 17 from Edward Street to Concession Road 3. This route
will link future development to the business area in Newcastle.
• The Waterfront Trail.
The Municipality is currently completing its Transportation Master Plan (TMP)
which will have regard for pedestrian and cycling facilities. The completion of this
plan, scheduled for September 2013, may result in further recommendations for
additional routes and which may result in a revision to the Region's plan as it
pertains to Clarington. The Region is aware of the progress of the Municipality's
TMP and is agreeable to making future revisions to the PCN where appropriate.
2.2 Types of Cycling Facilities
The following cycling facility types are proposed in Clarington:
• Cycling lanes (on-road dedicated lanes on both sides)
• Paved shoulders (additional paved surfaces on the shoulders of rural
roads)
• Signage only (in rural areas where there is insufficient shoulder width to
construct paved shoulders)
• Multi-use paths (off road paths on one side of the road)
REPORT NO.: EGD-026-12 PAGE 5
The Municipality concurs with the Region's proposed facility types which are
primarily cycling lanes in urban areas and paved shoulders in rural areas. It is
staff's view that, in the interest of safety, off-road multi-use paths be constructed
on one side of Regional Highway 2 between Courtice and Bowmanville where
the speed limit is 80 KPH.
2.3 Phasing of the Primary Cycling Network in Clarington
The Region has not proposed a schedule of implementation of the PCN in
Clarington in their May 2012 review. In subsequent communication from the
Region, the Region has proposed that the multi-use paths in Clarington (on West
Townline Road and Bloor St.) be constructed between 2017 and 2032. No
schedule has been indicated for the construction of either cycling lanes or paved
shoulders. The Municipality requests that the Region include a schedule of the
construction of all facilities in their final plan.
The construction schedule should not be tied entirely to road reconstruction
projects. That philosophy could potentially result in a series of disconnected
facilities which would not serve the cycling public adequately or efficiently. The
schedule should, instead, reflect a logical sequence of connected routes in the
form of a five year forecast region wide.
2.4 Funding of the Primary Cycling Network
The Region has proposed the following funding policy:
• The Region will provide the platform for multi-use paths within Regional road
rights-of-way along the PCN. The local municipality will be responsible for
the cost of constructing and maintaining the multi-use paths on Regional and
local roads.
• The Region will be responsible for 100% of the cost of construction,
maintenance and repair of on-road cycling lanes and paved shoulders on
Regional road rights-of-way.
• The local municipality will be responsible for 100% of the cost of
construction, maintenance and repair of all facilities on local roads.
Staff recommends that the Region be 100% responsible for the design and
construction of the PCN. Subsequent to the implementation of the network, the
Region should be responsible for the repair and maintenance of all facilities
within its rights-of-way, and the local municipalities will be responsible for the
repair and maintenance of all facilities within the road allowances under their
jurisdiction. As the implementation of the PCN progresses, the local
municipalities will provide further connectivity through the construction of
secondary trails.
2.5 Funding Commitment of the Region
The report should include the Region's commitment to ensure continuous,
reliable and sustainable funding through a long term capital plan as part of the
Region's annual budget process. As part of this plan, the Region should commit
REPORT NO.: EGD-026-12 PAGE 6
to a minimum annual amount to be reflected in its annual budget for
implementation of the plan. The Region should provide the local municipalities
with a five year forecast in order for the municipalities to plan for additional
connections ensuring connectivity as the network is built out.
2.6 Other Comments
• All maps in the plan should show the entire cycling route to the east limit of
the Region (i.e. East Townline Road).
• The Region has already committed to constructing some cycling facilities on
Courtice Road which should be depicted on the plan.
• The location of the multi-use paths should be clear on the plan (i.e. which
side of the road).
• It is not definitive what costs are included or not included in the cost
estimates. All costs to implement the implementation of the PCN should be
addressed in the final plan.
3.0 CONCURRENCE
Not applicable
CONFORMITY WITH STRATEGIC PLAN — Not Applicable
The recommendations contained in this report conform to the general intent of the
following priorities of the Strategic Plan:
_ Promoting economic development
_ Maintaining financial stability
_Connecting Clarington
X Promoting green initiatives
X Investing in infrastructure
Showcasing our community
Not in conformity with Strategic Plan
Staff Contact: Leslie J. Benson, P. Eng., Manager, Transportation & Design
Attachments:
Attachment 1 - Municipal Comments to the Region regarding the first draft of the PCN
(11/10/03)
Attachment 2 - Regional Cycling Plan Review (12/05/24)
Attachment 3 - Proposed Primary Cycling Network
Attachment 4 - Proposed Cycling Treatment Type
Attachment 5a - Proposed Primary Cycling Network with Municipality's recommended
additions, West Area
Attachment 5b - Proposed Primary Cycling Network with Municipality's recommended
additions, East Area
List of interested parties to be advised of Council's decision:
Beech Street Spinners Cycling Club
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ATTACHMENT - I
TO REPORT - E D-026-12
Energizing®ntario
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October 3, 2011
The Regional Municipality of Durham
P.O. Box 623
605 Rossland Road East
Whitby, ON
L1N 6A3
Attn: Mr.Jeff Brooks, Regional Planning Department
Dear Mr. Brooks:
Re: Regional Cycling Plan Comments
I would like to thank you for the opportunity to comment on the Regional Cycling Plan by way of
recommendations that came from the Tri Finance&Administration, Planning and Works Committees,
and forwarded to our Council for comments both from the Municipality and from key partners such as
local cycling clubs and individual users.
As you will be aware,the Municipality of Clarington is committed to working with the Region on their
Cycling Plan through our Official Plan because we see active transportation as an important part of our
long term vision. To add emphasis to this statement you should know that the Municipality's Strategic
Plan identifies alternative modes of transportation, including cycling,as one of our key objectives in
developing "a comprehensive transportation master plan that reviews all modes of transportation (i.e.
vehicular, cycling, and pedestrian)on our roads, sidewalks and trails". We recognize the many benefits
of alternative and active transportation including improved health benefits for our residents,cleaner air,
and a more efficient transportation network and reduced dependence on the automobile. In fact we
see the promotion of alternate modes of travel,such as walking,transit and cycling as being key in
allowing us to reach our sustainable transportation objectives.
To emphasize our commitment the Municipality is proposing that monies to fund the development of a
Master Transportation Plan and an open spaces and trails study be included in our 2012 municipal
budget identifying all modes of transportation and specifically including a Pedestrian and Cycling Master
Plan. These plans/studies will.be completed through our OP review process and will be proposed for
preparation in 2012 with adoption of the plan possibly in 2013 and implementation post 2013. It is
important however that time is taken to prepare a Pedestrian and Cycling Master Plan that clearly
identifies Clarington's own local priorities in a distinct and adequate way.
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The Pedestrian and Cycling Plan will respond to the need to develop policies,guidelines and standards at
the Regional level to take a leadership role and to support municipal efforts for the provision of cycling
and pedestrian facilities and related infrastructure as well as policies to support implementation. It is,
however, recognized that it takes more than bicycle lanes or recreational pathways/sidewalks to make
CORPORATION OF THE MUNICIPALITY OF CLARINGT®N
40 TEMPERANCE STREET, BOWMANVILLE, ONTARIO L1 C 3A6 T 905--623-3379 j
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Regional Cycling Plan Comments
October 3, 2011
Page 12
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Clarington pedestrian and cyclist friendly. It is our intention that the plan will address ways that we
might improve cyclist and pedestrian safety, education,enforcement and promotion, enhance modal
integration and the provision of trip end facilities. Our policies and guidelines will also look at design
standards and implementation measures for the development of both on and off-road local cycling
networks.
The Municipality is looking towards the development of our comprehensive pedestrian and cycling plan,
which would be co-ordinated with the Regional Cycling Plan addressing wide cycling and pedestrian
initiatives as we work together to examine opportunities to connect many of our villages and hamlets in
the northern portions within the Municipality and in the Region (to the west) and appropriate
treatments for bicycles and pedestrians within the Regional Road allowance. There may be
opportunities where expansion of the local system could facilitate network connectivity and consistency
and help increase the level of walking and cycling in the region.
In Clarington we do not rely solely on our long term vision, already we make it a practice to construct
new trails through our valleys to provide some north south continuity, however roadways need to also
be used to provide alternative north south continuity. Recently when we reconstructed Concession
Roads 7 and 8,we deliberately paved the shoulders to provide an east west spine across the top of the
municipality.
As you know the Municipality of Clarington is widespread compared to some other regional
municipalities with many smaller villages that need connections to a cycling and trail network and there
are various challenges for both the novice and experienced cyclist.
Having outlined our goals and intentions I would like to advise that the following points were gathered
from staff and from local key users for further consideration:
Comments from Staff
1. Taunton Road is identified as a Regional Cycling Spine but only as far east as Simcoe Street in
Oshawa. Cyclists who like to access rural roads in Clarington often come in from the west.Taunton
Road with a bicycle friendly cross-section might be used as a connection to the rural roads in
Clarington and it should be identified as a Regional Spine all the way to 115/35 Hwy.
2. The Waterfront Trail is not identified as one of the Regional Cycling Spines and it might be the most
heavily used cycling route between the lakeshore municipalities in the Durham Region.The Region
should consider a funding formula similar to what they have proposed for rural roads, a 50/50 cost
sharing for the cost of granular,asphalt, signage, markings,and the provision of other amenities.
The maintenance of the Waterfront Trail would remain the responsibility of the respective
municipality.This type of funding formula could expedite the improvement of deficient sections and
the construction of new sections of Waterfront Trail.
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3. The cycling spine should provide for connections to all local and regional trails, as well as
connections to other modes of transportation such as GO Transit particularly since GO Transit
provides for and encourages bicycle riders to use their transit. In the report,the route appears to
stand on its own without mindful connectivity to other routes and transportation modes.
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Regional Cycling Plan Comments
October 3,2011
Page 13
4. Hwy 2 through Clarington has Regional sections and Municipal sections.The methodology to
determine responsibilities in the Regional Cycling Network should consider the entire length of Hwy
2 as"Regional'.
5. In addition to multi-use boulevard paths,on-road cycling facilities on urban cross sections should be
considered within the methodology of the Regional Cycling Plan.
6. While the design of the "cycling facilities" is mentioned,there is no mention of who will undertake
the design and who will pay for the design. The entire cycling plan will be under the jurisdiction of
eight different road authorities, and there must be consistency throughout with respect to design,
signage, path markings, etc.
7. While Sect. 1.8 of the report discussed Risk Management and Mitigation Strategies, subsequent
reports on this matter identify that further consideration needs to be given to risk management and
insurance issues"to ensure that the proper standard of care is provided [level of service]". Liability
has been and continues to be a significant issue, and to our knowledge, no "proper standard of
care" has been defined. Sect. 1.11 implies that winter maintenance is expected on the cycling
facilities. There are significant costs and liability associated with that level of service. Appropriate
levels of service for maintaining these facilities must be defined.
8. The report proposes that the local municipality is entirely responsible for the cost of"path
maintenance" in urban areas where a multi-use boulevard path will be located on one side of the
road. Clarington maintenance personnel,therefore,will be required to maintain bike lanes along
kilometers of Regional road boulevards which will have significant impact on their work schedules.
As stated previously,the level of service on those paths is not defined. For these reasons and for
consistency with respect to design, maintenance, signage, markings, etc.,cycling facilities along
Regional Roads should be completely funded and maintained by the Region.
9. There are no north/south Regional Cycling Spines in Clarington, currently shown on the plan. Spines
along such roads as Reg. Rd. 34, Reg. Rd.57, Reg. Rd. 14 and Reg. Rd.42 would be appropriate
north/south routes with a great deal of connectivity to destinations. As well, significant cycling
activity occurs all along Hwy. 2 in Clarington as cyclists travel east, and we request that the Cycling
Spine be extended to.the Clarington/Port Hope boundary.
Comments from Beech Street Spinners(BSS)Cycling Club
1. Hwy 2 should be included as a Regional Cycling Spine to the east limit of Clarington.This route is
used regularly by the BSS for rides to Port Hope and beyond.
2. The Beech Street Spinners do not believe that Taunton Road is a good route for cycling in its current
configuration.The club always chooses alternate routes to avoid Taunton Road and believes that
other east/west spines should be identified.
3. The Plan only allows for Regional funding assistance on rural cross sections of Regional Roads
identified in the plan part of the Regional Cycling Spine.There are partial sections of Regional Roads
that are often used by the BSS as links to other routes. For instance the section of RR 57 between
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Regional Cycling Plan Comments
October 3, 2011
Page 14
Nash Road and Longworth Avenue is a frequently used route that would benefit from a paved
shoulder bikeway on both sides of the road.Since RR57 is not part of the Regional Cycling Spine it
would currently not be eligible for funding assistance from the Region.
4. Regional Road 34 is used regularly by the BSS and should be identified as a Regional Cycling Spine
between the 401 and Taunton Road.
5. Regional Road 42 is used regularly by the BSS and should be identified as a Regional Cycling Spine
between Hwy 2 and Concession Road 4.
The Municipality is committed toward developing a comprehensive and viable transportation network
that supports various alternative modes of active transportation within Clarington. The Regional Cycling
Plan is vital but equally important,for Clarington and for the Region, is the need for us to identify our
own unique vision and priorities and we intend to do so,with your help, by way of our 2012 Pedestrian
and Cycling Master Plan. Once that is in place, and a copy has been made available to you,we feel that
we will be in an even better position to support and develop a combined regional vision.
I invite you to contact me directly with your thoughts and questions.
Sincerely
Aj
A. S. Cannella, C.E.T.
Director of Engineering Services
ASC/j b
Cc: Clarington's Mayor and Council
Frank Wu, C.A.O.
P. Barrie, Municipal Clerk
D. Crome, Director of Planning Services
F. Horvath, Director of Operations
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ATTACHMENT - 2
TO REPORT - EGD-026-92
The Regional Municipality of Durham
To: The Planning & Economic Development, Works and
Finance &Administration, Health & Social Services
Committees
• From: A.L. Georgieff, Commissioner of Planning and
Economic Development
C. Curtis, Commissioner of Works
R.J. Clapp, Commissioner of Finance
Dr. R.J. Kyle, Commissioner & Medical Officer of Health
Report No.: 2012-J-18
Date: May 24, 2012
SUBJECT:
Regional Cycling Plan Review, File: D21-32
RECOMMENDATIONS:
THAT the Joint Planning & Economic Development, Works, Health and Social
Services, and Finance &Administration Committee recommends to Regional
Council:
a) THAT the proposed Primary Cycling Network (Regional Cycling Plan) and j
implementation framework as contained in Commissioners' Report No.
2012-J-18 be released for public consultation, which includes the
following:
i) THAT the proposed Primary Cycling Network (Regional Cycling
Plan in Attachments 7-14), which includes 205.6 km of cycling
facilities to be provided on Regional Roads with the following
treatment types to be phased over the next 20 years;
1.04 .
Report No.: 2012-J-18 Page No. 2
Proposed Primary Cycling Network Phasing by Facility Type -Regional
Portion
Multi,Use BIVd Patti or Cycle Track 127.4 4,3 17.5 105.6
Paved Shoulder 27 1.3 5.3 20.4
On Road Cycling Lanes 37.1 0.0 20.8 16.3
Buffered G clm Lanes. 14.1 0.0 1 1.6 12.5
Totals 205.6 5.6 45.2 154.8
Notes: Only Regional Road portions of the Primary Cycling Network have been included in this table
b) And further to approval of the above:
i) THAT the Region continue its practice of being 100% responsible
for providing the platform for multi use paths within Regional Road
rights-of-way contained in the proposed Primary Cycling Network at
its sole expense;
ii) THAT the Region continue its practice of being 100% responsible
for maintenance of all on road cycling facilities and paved shoulders
on Regional Roads that form part of the Primary Cycling Network;
iii) THAT the Area Municipalities continue to be 100% responsible for
the maintenance and repair of multi use paths on Regional Roads
that form part of the Primary Cycling Network, by the area
municipality in which the multi use path is located; and
iv) THAT the Region's funding policy paved shoulders on Regional
Roads on the Primary Cycling Network, be changed from the
former 50%/50% cost sharing arrangement with the Area
Municipalities, to the Region now being 100% responsible for the
capital construction costs for all on road cycling facilities and paved
shoulders;
c) THAT the area municipal councils be requested to,comment on the
proposed Primary Cycling Network and implementation framework prior to
September 15, 2012; and
1.05
Report No.: 2012-J-18 Page No. 3
d) THAT a copy of Commissioners' Report No. 2012-J-18 be forwarded to
all Durham area municipalities.
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REPORT:
1. PURPOSE
1.1 The purpose of this report is to present the findings of the Regional
Cycling Plan review and to seek authorization to release this report for
public consultation. Comments on the findings of the Regional Cycling
Plan review will be requested from each of the area municipalities prior
to September 15, 2012.
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2. BACKGROUND
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2.1 In October 2008, Regional Council approved the Regional Cycling Plan
and related policies. The Plan, which identifies key Regional road
spines where cycling paths should be implemented, builds on and
integrates with area municipal cycling initiatives, to provide a Region-
wide network serving both urban and rural areas (Attachment 1).
However, since the adoption of the Plan, a number,of requests have
been made by the area municipalities to revise the network.
2.2 In November 2011, Regional Council resolved:
on the updated Regional Cycling
a) THAT the recommendations p g y g
Plan be presented at the March 22, 2012 Joint meeting of the
Finance and Administration, Planning and Economic and
Development, Works and Health and Social Services
Committees, to allow for adequate analysis and input by the
area municipalities and interested parties;
b) THAT an economic analysis of the Waterfront Trail through
Durham be undertaken to identify local and Regional costs and
benefits associated with the completion of the Trail;
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Report No.: 2012-J-18 Page No. 4
c) THAT the Commissioner of Finance report back on funding
alternatives for the Cycling Plan, including a review of formulas
used in other Southern Ontario Regional Municipalities; and
d) THAT staff develop a work plan that involves a Regional and
Area Municipal Senior staff working committee and a work plan
that assesses the items in Attachment No. 4 to Joint Report No.
2011-J-45 plus a comparison of best practices in funding cycling
facilities and socioeconomic, environmental and health benefits
of a Regional Cycling Plan.
2.3 In December 2011, a draft work plan was circulated for comment by
each of the area municipalities. Comments were received from a
number of the area municipalities in.December 2011 and January
2012.
2.4 In January 2012, a meeting was held with area municipal staff to
present research on the benefits of cycling and best practices for
cycling planning, a preliminary evaluation of the cycling network
focussing on constraints and opportunities, and the development of a
communication strategy. One-on-one meetings were also held with
area municipal representatives to discuss issues and network
objectives specific to their municipalities.
2.5 In February 2012, a preliminary draft cycling network was released for
area municipal review. Written comments were received from several
of the area municipalities and are summarized in Attachment 2.
2.6 In March 2012, Joint Committee received Commissioner's Report
2.012-J-11, indicating that a draft Regional Cycling Plan would be
presented at the May 24, 2012 Joint Committee meeting, in response
to requests from the City.of Pickering, Town of Ajax, City of Oshawa
and Municipality of Clarington. In addition, the report also indicated that
other matters raised by the four area municipalities would also be
considered on May 24, 2012. These matters included: that the Region
undertake public consultation on the draft Regional Cycling Plan; that
the Region provide the area municipalities until September 30, 2012 to
respond to the draft Regional Cycling Plan; that the Region provide for
a continuous, stable and sustainable funding commitment; and, that
107
Report No.: 2012-J-18 Page No. 5
the Region consider the implementation of gaps in the network,
independent of road construction projects.
2.7 On March 29; 2012, a meeting was held with the Area Municipalities
and the following was presented:
• the results of an analysis of how other two-tier Southern Ontario
Municipalities comparable to Durham, are funding cycling; and
• the potential marginal economic costs and benefits of cycling.
3. REVIEW OF THE PLAN
3.1 The review of the Cycling Plan focussed on two main components: the
development of a region-wide cycling network; and, an implementation
strategy, including an examination of network phasing, costs, funding
strategies, and principles for reducing the Region's exposure to risks
and liabilities.
3.2 To complement the development of the network, directions for a
communication strategy have been developed that will outline
recommended education., promotion and enforcement practices
necessary to build a well informed and safe.cycling community (see
Attachment 3 for details), A detailed work program and budget for the
communication strategy will considered during the annual business
planning and budget process.
4. NETWORK DEFINITION
4.1 In planning for cycling facilities for the Region, a hierarchy of networks
was examined as defined in the following table:
Report No.: 2012-J-18 Page No. 6
mary; j` Routes that connects Typically located within Network is designated
r
Gychr�g;` mayor centres,inter- arterial road corridors, and defined within the
(W"--N modal facilities and Regional Cycling Plan.
i (Spines ,YF destinations, providing
t t Ft
service between
z� �> communities,area
municipalities and other
regions.
_'Region°alTral = Regional scale,multi use Typically located off Network is defined
3 Ne4�tork routes that are typically road. through the Durham
used by recreational Region Trail Network.
F.
Y 7t;
users.
Secondary Local routes that connect Mix of on and off road Network is designated
yywCycllng��4-' to the Primary Cycling facilities. and defined within area
Network(Local Network,connect municipal cycling plans.
RoGesJ', neighbourhoods and Primarily,located within
facilitate shorter distance area municipal rights-of-
trips. way and local trail
systems.
4.2 The three network elements (i.e. Primary Cycling Network, Regional
Trail System, and Secondary Cycling Network) collectively form the
broader regional cycling network. These networks are planned to be
connected and provide routes for a variety of users and trip types.
4.3 This Regional Cycling Plan review focuses on the planning, design and
implementation of the Primary Cycling Network which includes roads
under Regional and area municipal jurisdiction. It is important to note
that the cycling networks referenced in the above table are defined by
their function rather than by jurisdiction.
5. IDENTIFYING THE PRIMARY NETWORK
5.1 -In identifying and designating a Primary Cycling Network, a stepped
approach was employed. This approach was based on the practice of
a number of progressive cycling nations (i.e. Denmark, Netherlands,
England, New Zealand, Australia and Germany). The approach
includes an assessment of appropriate treatment types (i.e. cycling
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Report No.: 2012-J-18 Page No. 7
lanes, buffered cycling lanes, cycle tracks, multi use paths, paved
shoulders—as illustrated in Attachment 4).
5.2 As such, the following steps were taken in evaluating potential routes
for the Primary Cycling Network, and planning and implementing
particular facility treatments:
1. A collection of candidate routes, including suggested routes by
the area municipalities and other cycling stakeholders, were
evaluated given the needs of cyclists and a set of network
principles (see Attachment 5.for details).
2. Once the preferred Primary Cycling Network was identified,
potential treatment types were selected based on future motor
vehicle operating speeds and traffic volumes using the following
graph.
Facility Selection Graph
0 1 2 3 5 6 7 8 9 10 11 12 10 t1 >15
Motor Vehicle 100
Opmting Sprod 1
(851h Pamndla)
00
xffvh
70 T. ' 70
00 �Yf oC 4 �
50 Cycle Lane
N 1'< 60
40 40
M.
W. 30
} 3
,.
v
sn ,+ ti + , y YI � 'Con�etl8d C3�Ildkrollf 5i`� zo
C f
, , r �CDn3l ie)Separatr d FaotlllY or1¢tameta Routes)
0 1 2 3 4 5 6 7 8 9 10 11 -12 13 14 >15 '..
AV*,A9.Dally Tnflle Volume{all lanes.both dtrectiotul
THOUSANDS '....,
Source:Delphi MRC,Cycling Facllify Selection Decision Support Tool&User Guide,Issue 1,0,City of Ottawa.May
2011
3. A more detailed examination was undertaken to establish
preferred treatment types,on a corridor-by-corridor basis having
consideration for corridor specific characteristics, such as higher
commercial vehicle volumes, multiple driveways, on-street
parking, and right-of-way constraints (see Attachment 6 for
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Report No.: 2012-J-18 Page No. 8
details). Through future Environmental Assessments and other
design studies, treatment types will be confirmed and designed in
accordance with recognized standards and guidelines.
Map 1A and 1 B illustrate the draft Primary Cycling Network
(Attachments 7 and 8) and Map 2A and 213 illustrate the facility
treatment types for the Primary Cycling Network (Attachments 9 and
10) which has been used for determining the cost of the network.
5.3 In implementing the Primary Cycling Network, the Region of Durham
will continue to rely on a set of accepted design practices. Principally,
the Region relies on guidelines and standards developed by the
Ontario Traffic Council and the Transportation Association of Canada.
These organizations have developed recommended standards for a
variety of design parameters (e.g. gradients, design speeds, sight
distances, horizontal and vertical alignments, cross slope), design
elements (e.g. pavement markings, intersection treatments, crossing
treatments, structure treatments), cycling amenities (e.g. parking, catch
basin covers, end trip facilities), signage and maintenance.
6. PROPOSED PRIMARY NETWORK SCOPE, ESTIMATED COSTS,
AND IMPLEMENTATION STRATEGY
6.1 Existing Cycling Plan Implementation Progress to Date
6.1.1 Since the implementation of the Regional Cycling Plan in 2008,
approximately 12.3 km of the proposed network has been constructed
at a total estimated cost of$1.6 million, as outlined in the following
table: `
Brock Road` Dellbrook Rossland Road Multi-Use
Avenue 1,000 Pickering Path $225,000
Uicfor a Street Thickson Rd. 420 m east of Thick son Multi-Use
Rd. 420 Whitby Path $94,500
Tauntoh Roa .
, d Thornton Road 325 m east of Airport Multi-Use
Blvd. 1,200 Oshawa Path $270,000
Simcoe'Sfreet• Oshawa Creek Conlin Road Multi-Use
1,325 Oshawa Path $298,125
�1 �
Report No.: 2012-J-18 Page No. 9
Srncoe$tre'et Hwy 407 North Steepleview Crt. Paved
Approach 430 Oshawa Shoulder $37,410
SiRtc.4 Street;';. 0,2 km N of 1.5 km N of Raglan Rd. Paved
t Raglan Rd. 1,300 Oshawa Shoulder $113,100
:....
`Si ricoe;Sfreet;", 01 km S of 0.25 S of Raglan Rd. Paved
Howtlen
2,000 Oshawa $1741000
t Shoulder
Tordnto Street Brock Road West of Concession 6 Paved
4,600' Uxbridge Shoulder $400,200
Total 12.3 km Total $1,612,335
6.1.2 Of the 12.3 km of the cycling plan built to date, there are 7.9 km that
are no longer on the proposed Primary Cycling Network (i.e. Simcoe
Street from Raglan Rd to Howden, and Toronto Street from
Concession 6 to Brock Road) as more appropriate rural routes were
selected based on the new selection criteria.
6.2 Scope and Size of the Proposed Network
6.2.1 The proposed Primary Cycling Network includes a total of 205.6 km of
cycling facilities to be provided on Regional Roads, with the following
treatment types to be phased over the next 20 years.
Proposed Primary Network Phasing by Facility Type - Regional Portion
Multi Use Blvd Path'or Cycle Tracts 127.4 4.3 17.5 105.6
Paved Shoulder 27 1.3 5.3 20.4
On Road Cycling Lanes i 37.1 0.0 20.8 16.3
Bffered:.C.'cling Lanes 14.1 0.0 1.6 12.5
Totals 205.6 5.6 45.2 154.8
Notes; Only Regional Road portions of the Primary Cycling Network have been included in this table
I
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Report No.: 2012-J-18 Page No. 10
6.3 Estimated Gross Capital Cost of the Proposed Network—
Regional Roads
6.3.1 The gross capital construction cost to build the remaining network is
estimated to cost $63.8 million to construct, as identified in the table
below.
Proposed Primary Network on Regional Roads - Estimated Gross Costs
oil
Multi Use Blvd path o
Cyc1�Tracks 127.4 $37,900,772 $8,892,000 $46,792,772
27 $3 057,659
$0 $3,057,659
On�Road Cycling Lanes ' 37,1 $482,040 $0 $482,040
Buffered Cycling Lanes;':, 14.1 $2,698,670 $2,808,000 $5,506,670
Signage Only 0 $0 $0 $0
$7,985,957 $0 $7,985,957
Totals' ` , $52,125,098 $11,700,000 $63,825,098
6.4 Estimated Life Cycle and Maintenance Costing for the Primary
Cycling Network—Regional Roads
6.4.1 The Regional share of life cycle costs were estimated for the proposed
Primary Cycling Network, based on the following activities taking place
on the additional asphalt with full build-out of the primary network:
• crack sealing in year 5;
• a grind and overlay treatment in year 15; and
• a major asphalt replacement in year 25.
The estimated Regional share of life cycle costs have been indentified
in the following table:
Report No.; 2012-J-18 Page No. 11
Life Cycle Cost Analysis - Regional Roads
27 216,000 $0.25 Crack Seal(Year 5) $54,000
Grind and overlay(year
216,000 $25 15) $5,400,000
Major pavement upgrade
216,000 $55 ear 30 $11,880,000
On RoadCyclmg � �-
Lanes 4;' `. ,. 5._'. , 37.1 111,300 $0.25 Crack Seal(Year 5) $27,825
Grind and overlay(year
111,300 $25 15) $2,782,500
Fr7 t
Major pavement upgrade
111,300 $55 ear 30 $6,121,500
Buffered Cycling
Lanes::.,:} :: 14.1 56,400 $0.25 Crack Seal(Year 5) $14,100
Grind and overlay(year
` 56,400 $25 15) $1,410,000
Major pavement upgrade
56,400 $55 ear 30 $3,102,000
Total $30,791,925
6.4.2 It is not anticipated that the fully implemented Cycling Plan will result in
a direct increase in the cost of winter maintenance. However;
consideration will need to be given to the most appropriate response
time for some winter maintenance activities. For example, on rural
portions of Regional Road, shoulders of the roadway are ploughed
subsequent to ploughing the primary travelled lane of the road. If a
rural portion of regional road-has a paved shoulder and is part of the
cycling network, consideration may need to be given to ploughing the
paved shoulder as a component of the primary winter event response
and additional costs would occur.
6.4.3 The proposed Primary Cycling Network does identify 145 km of
proposed multi-use path on-regional and local roads. Area
municipalities are responsible for the summer and winter maintenance
of multi-use boulevard paths. In some cases the multi-use paths can
be installed in lieu of sidewalks in conjunction with area municipal
sidewalk replacement programs. In these instances, the ongoing
maintenance and operation costs to the area municipalities are
.expected to be minor since one facility type is being replaced by
another. In other-cases, where no sidewalk currently exists, multi-use
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Report No.: 2012-J-18 Page No. 12
paths can be constructed in lieu of side walk, when user demand for
the facility becomes warranted. In these cases, maintenance and
operational costs incurred by the area municipality would be
incremental, given that the facility is new, however the multi-use path
would be constructed in lieu of a sidewalk which would have had pre-
determined ongoing costs
6.5 Implementation Timing
6.5.1 In order to estimate the phasing of the construction of the proposed
network, two general timeframes have been identified; short term (5
year—see Attachments 11 and 12), longer term(6 —20 year—see
Attachments 13 and 14). These timeframes have been identified
based on implementation opportunities detailed below.
I
6.5.2 Paved Shoulders on Regional Roads (Rural Cross-Section)
. I
In order to achieve economies of scale, construction of paved
shoulders on Regional Roads will take place in conjunction with
planned road rehabilitation. The pavement condition index has been
used as an indicator to determine if rehabilitation of a Regional Road
segment is anticipated in the short term (5 year), longer term (6— 20
year) timeframe.
6.5.3 Boulevard Multi-Use Path and Cycle Tracks (Urban Cross-
Section)
In instances where planned expansion work has been identified on
portions of the proposed Primary Cycling Network within in the
Region's 2012 Capital Road Program and Four Year Forecast and the
2008 Development Charge By-law, there will be an opportunity to
construct multi-use boulevard trails or cycle tracks in conjunction with
the planned road expansion work. Implementation phasing has been
aligned with these planning documents.
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Report No.: 2012-J-18 Page No. 13
6.5.4 On Road Cycling Lanes and Buffered Cycling Lanes (Urban
Cross-Section)
In urban cross-sections where there is currently sufficient pavement
width to provide on road cycling lanes or buffered cycling lanes,
typically only additional line marking and signage is required.
Implementation phasing for the portion of the proposed Primary
Cycling Network that meets this criteria has been identified in the short
term timeframe.
In urban cross sections where there is currently insufficient pavement
width to provide on road cycling lanes or buffered cycling lanes,
implementation phasing has been assigned to match planned widening ,
timing as identified the Region's 2012 Capital Road Program and Four
Year Forecast and the 2008 Development Charge By-law. If there is no
planned future road expansion, the implementation would occur in
conjunction with future road reconstruction and all phasing has been
assigned to the long term timeframe.
6.6 Impact to the Roads Capital Program
6.6.1 If the proposed Primary Cycling Network is constructed over a 20 year
period, it is estimated that$2.4 million will be required annually from
the Capital Road Program. This does not include additional
maintenance or life cycle costs.
6.6.2 Non-Growth Impacts
Of the $2.4 million, it is estimated that average annual allocations of
approximately $150,000 would be required from non-growth portions of
the capital program. This would reduce funding availability for non
growth supported programs, such as structure rehabilitation and road
rehabilitation. Over 20 years, road rehabilitation accomplishments
would be reduced by approximately 7.5 km
6.6.3 Growth Impacts
It is estimated that an average of$2.25 million would be required
annually from the growth funded portion of the Capital Road Program.
Report No.: 2012-J-18 Page No. 14
This would reduce funding availability for growth supported programs
such as road expansion projects. Over 20 years, a reduction 13 km of
road expansion accomplishments could be expected.
7. FINANCIAL IMPLICATIONS
7.1 Review of Other Two-Tier Southern Ontario Municipalities
Funding Approaches of Cycling
7.1.1 In accordance with Regional Council direction, an analysis was
completed of how other two-tier southern Ontario Municipalities that
are comparable to Durham, fund cycling.
7.1.2 On March 29, 2012, the results of this analysis, was presented to the
area municipalities. A summary of the key findings are as follows
including the current recommended funding responsibilities for the
proposed Primary Cycling Network:
Summary of Funding Responsibilities
Municipality Regional Roads Local Area Municipal Roads
On Road Cycling Multi Use Trails/Sidewalks On Road Cycling Multi Use TraHs/Sidewalks
Construction Maintenance Construction Maintenance Construction Maintenance Construction Maintenance
Durham Region100%1 Region 100% Region&Local Local Local Local Local . Local
(Recommended to MunicipalltP Municipality Municipality Municipality Municipality Municipality
change from 50150) 100% 100% 100% 100% 100%
York Region Region 100%' Region 100% Local Local Local Local Local Local
Municipality Municipality Municipality Municipality Municipality Municipality
100%3 100% 100%3 100% 100%s 100%
Halton Region Region 1000/o Region 100% Local Local Local Local Local Local
Municipality Municipality Municipality Municipality Municipality Municipality
100% 100% 100% 100% 100% 100%
Peel Region Region 100% Region 100% Region 100%1 Local Local Local Local Local
Paved Shoulder Municipality Municipality Municipality Municipality Municipality
Rural Rd Only' 100% 100% 1 100% 100% 100%
Waterloo Region Region 100%' Region 100% Local Local Local Local Local Local
Municipality Municipality Municipality Municipality Municipality Municipality
100%4 100% 100%4 100% 100%4 100%
Notes
t Cost of constructing cycling facilities included in the cost of the road construction project.As such cycling facilities are constructed when
road construction project is approved and undertaken,as approved during the business planning process.
2 Durham Region to provide the platform for the multi use path at its expense, and the Local Municipality responsible for providing asphalt
structure at its expense.
3 York Region (Municipal Partnership.Program)provides$500,000/year in dedicated annual property tax funding to Local Area Municipalities to
accelerate implementation of cycling facilities that serve a Regional context Local Municipalities apply for the funding and the Region selects
projects to receive the funding.
Waterloo Region provides$600,000/year in dedicated annual property tax funding as part of its road rehabilitation program,to accelerate building
either Regional or Local Municipal cycling facilities.Waterloo selectspriority projects in consultation with Local Municipality.
Report No.: 2012-J-18 Page No, 15
7.2 Recommended Funding Formula For Durham Region's Proposed
Revised Cycling Plan
7.2.1 It is recommended that the following cost sharing and funding formula
be considered for the proposed Primary Cycling Network:
• For all paved shoulders and on road cycling lanes, including
buffered cycling lanes on Regional Roads that form part of the
proposed Primary Cycling Network, the Region will be 100%
responsible for all the capital construction cost of providing the
cycling facility (including land acquisition and utility relocation,
signage, and markings), customized bridge structures, and ongoing
regular maintenance and repair costs for those on Regional Roads.
• For multi use paths and cycle tracks located within Regional Road
rights-of-way that form part of the Primary Cycling Network, the
Region will be responsible for providing at its expense, a platform
for the construction of a multi use path. The cost of providing a
platform will include land acquisition, utility relocation,'grading and
customized bridge structures. The cost of granular, asphalt,
signage, markings, the provision of other amenities and path
maintenance and repair, is the sole responsibility by the area
municipality in which the multi use path is located.
7.2.2 This recommended funding formula is consistent with the funding
practices used by the other four comparable southern Ontario two-tier
municipalities in that the Regions are 100% responsible for the costs of
providing and maintaining on road cycling facilities and paved
shoulders on Regional roads designated within their plans. In addition,
the recommended funding formula also requires the Region to provide
the platform for multi use paths on Regional Roads.
7.2.3 This recommended funding formula increases Durham's funding share
from the previously approved 2008 Regional Cycling Plan, in that the
Region is now responsible for providing at its sole expense on road
cycling lanes and paved shoulders on Regional Roads designated in
the proposed Primary Cycling Network.
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Report No.: 2012-J-18 Page No. 16
7.3 • Financing Shares of Durham's Recommended 2012 Cycling Plan
7.3.1 The Regional capital construction cost estimate to build the remaining
proposed Primary Cycling Network was based on recent vendor input ,
pricing and validated against cost estimates used by other Regions in
developing their cycling plans.
Estimated Regional Costs for Proposed Revised Regional Cycling Plan
2012 2013-2016 2017-2032 Total
Capital Cost $ $ $ $
Base Multi Use/Cycle Track' 1,023,875 3,424,115 18,392,191 22,840,181
Paved Shoulder2 151,328 601,918 2,304,413 3,057,659
On Road Cycle Lane 0 270,130 •211,910 482,040
Buffered Cycle Lane 0 20,475 2,678,195 2,698,670
Structures 0 1,012,440 6,973,517 7,985,957
Land and Utility Relocation 0 2,340,000 9,360,000 11,700,000
Subtotal .1,176,203 7,669,078 39,920,226 48,764,507
Financing
Development Charges 358,3.56 1,198,440 5,599,116 7,155,913
Required Property Tax 816,847 6,470,638 34,321,110 41,608,595
Total Financing 1,175,203 7,669,078 39,920,226 48,764,507
N otes:
1 Capital cost of providing a 3 metre wide platform one side only
2 Capital cost of providing a 2 metre paved shoulder on both sides of road and signage
3 Cost for on road cycling lane is estimated for lane markings and signage
4 Capital cost per metre for lane markings or if a lane needs to be added
5 Estimated development charge revenue based on 2008 Regional DC By-law,
7.3.2 The Region's 2008 Development Charge Background Study included
growth related costs for platforms for multi use trails in conjunction with
future road widening projects using a representative network.
7.3.3 Based on the Region's 2008 current Development Charge.Background
Study, it is estimated that development charge revenue could reach
$7.2 million over the 20 year period, or an average of$360,000 per
year. This would also result in the net property tax requirement for the
Region of$41.6 million over the next 20 years or an average of$2.1
million per year. This would equate to an estimated Regional property
tax impact of 0.4%.
1 � �
Report No.: 2012-J-18 Page No..17
7.3.4 The Region will also need to incur ongoing maintenance, repair, and
rehabilitation costs. The estimated life cycle costs of$30 million over a
30 year period will require annual property tax financing of$1 million
per year, equating into another 0.2% property tax increase required.
during the implementation of the Plan.
7'.4 Potential Economic Benefits
7.4.1 In accordance with Regional Council direction, an analysis of some of
the potential costs and benefits of implementing cycling and off road
trails. On March 29, 2012, the results of this analysis, was presented to
the Area Municipalities.
7.4.2 A large number of economic studies were reviewed and the results of
the studies varied widely due to the different circumstances in each of
the jurisdictions studied and the assumptions used in the analyses.
The results also varied in terms of qualitative considerations, case
examples, and complex economic model results.
7.4.3 With Durham Region being unique with its own characteristics (e.g.
urban rural composition, large geographic area and location in the
GTA, population densities, population and employment mix, etc), the
results of the various studies reviewed cannot be simply transferred to
Durham. However, some of the economic benefits and costs and can
be generalized and may apply to Durham in varying degrees.
7.4.4 In terms of the Waterfront Trail, the specific benefits and costs to
Durham also cannot be quantified.
7.4.5 Generally,.some of the key marginal economic benefits could include:
• Increased employment and economic growth for the Region;
• Increased tourism activity;
• Reduction in emissions and congestion cost;
• Increased utilitarian benefit for users; and
• Cheaper mode of transportation for users.
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Report No.: 2012-J-18 Page No. 18
7.4.6 With limited current usage counts of cyclists in Durham and no recent
estimates of how many cyclists would be attracted to Durham if the
Cycling Plan was expanded, it is not possible to quantify the economic
and tourism benefits. Also, with no recent estimate of how many
vehicle drivers in Durham would shift to using their bicycles instead, it
is not possible to quantify the travel related benefits.
7.4.7 Balancing the marginal benefits, are the costs to implement the plan.
Generally, some of the economic costs will be:
Construction costs to build cycling and multi use trails: It is
estimated that the Region's cost to implement the Regional
Cycling Plan over the next 20 years is $48.8 million. With $7.2
million in development charge revenue estimated, the net
property tax cost to the Region could be $41.6 million. This
could equate into an average annual property tax requirement of
$2.1 million or an instant 0.4% property tax increase.
• Annual maintenance costs: The estimated annual maintenance
costs for the Region for on road cycling facilities cannot be
estimated at this time.
Rehabilitation and replacement costs based on life cycle
costing: The estimated rehabilitation and replacement costs for
the Region's share of the cycling facility is estimated at $1
million, per year.
® Opportunity cost (i.e. funding being re allocated from road work
toward cycling thereby reducing road expansion and
rehabilitation work): If the annual average property tax funding
of$150,000 is used for cycling instead of roadwork, that could
translate into 7.5 km of road rehabilitation and 13km of road
expansion having to be deferred over a 20 year period.
® Potential to reduce vehicle capacity if cycling is implemented in
existing road allowances.
® Monitoring and Safety and.risk management of cyclists.
121
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Report No.: 2012-J-18 Page No. 19
8. RISK AND LIABILITY
8.1 Liability Exposure
8.1.1 Municipalities have a statutory duty to maintain their roads in a proper
state of repair, and a common law duty to warn the road users of
hazards. A condition of non-repair can involve "any aspect of the road
and its environs"; including "not only the surface of the road but also
the alignment of the road, obstacles on the side of the road and
signage".
8.1.2 Several courts have found that the reasonable state of repair required
for cyclists may be different from that required for cars. Thus, the
Region will be incurring increased liability exposure to cyclists, and
especially if dedicated bike lanes are introduced.
8.2 Sources of Increased Exposure
8.2.1 There will be adverse implications from the implementation of
dedicated bicycle lanes on roads under the jurisdiction of the Region of
Durham. Increased liability exposure will come from heightened
maintenance obligations, allegations of negligent bike lane design and
an increased duty to warn. These factors combine with the fact that
significant numbers of vehicle-bicycle accidents occur as a result of
turning movements at intersections and private driveways, where
bicycle lanes provide little, if any, improvement in safety. Currently, the
Region has no legal obligation to provide bicycle lanes in order to fulfill
its statutory duty of maintaining Regional Roads in a state of repair.
Currently, the Region does not owe a higher duty to cyclists. Once
dedicated bike lanes are introduced the higher standard will now be
owed.
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Report No.: 2012-J-18 Page No. 20
8.3 Nigher Standard of Repair
8.3.1 Dedicated bike lanes will necessitate a higher standard of repair within
the bike-lane to ensure that it is reasonably safe for cyclists, not just
motor vehicles, as would otherwise be the case in a shared road
context. The creation of dedicated bike lanes will lead to a higher
maintenance onus on the Region merely because of the fact that it is
within the Region's contemplation that cyclists will use those lanes.
This onus applies with respect to maintaining the lanes themselves,
separate and apart from ensuring that they are in a condition of good
repair.
8.4 Increased Level of Maintenance
8.4.1 It is also quite common to have the presence of sewer grates and/or
catch basins located at the road's edge which will pose additional
liability risks to the Region that ordinarily do not present a concern with
vehicular traffic. Likewise, the presence of trash, debris or gravel that
tends to accumulate at the sides of the road also poses potential
hazards to cyclists. The Region would be required to increase the
level of maintenance operations to ensure that adequate road cleaning
facilities appropriate for travel by cyclists. Finally, the presence of ice
and snow will create hazards for cyclists that would not necessarily
pose a danger to,vehicular traffic.
8.5 Design Standards
8.5.1 The Region would need to ensure that the design of its lanes conforms
to or exceeds prevailing industry standards as outlined by the
Transportation Association of Canada. Safety precautions such as
warning signs and other traffic slowing mechanisms would be required
to mitigate conflict between cyclists and motorists where bike lanes
may come to an end, such as at intersections. By their nature, bike
lanes tend to increase confusion and conflict at intersections, either
forcing the cars to cross the lanes in an awkward manner, or enticing
cyclists to filter to the front of the lane and possibly blocking turning
actions by motorists. Bike lanes also encourage passing on the right,
which can be a very dangerous action for the cyclist.
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Report No.: 2012-J-18 Page No. 21
8.6 Duty to Warn
8.6.1 The Region will need to install special signage particular to cyclists on
routes within the Primary Cycling Network. This would include signage
pertaining to hazards, direction and/or information. Currently, the
Region is under a duty to post signage in respect of hazardous
conditions alerting users to the need to pay extra attention to the road.
With bike lanes, this duty will go above and beyond that which is
already provided to vehicular traffic as conditions which may not be
particularly hazardous to motor vehicle users, such as steep grading or
minor potholes or cracks in the roadway, can be hazardous to cyclists.
9. CONSULTATION
9.1 In November 2011, it was noted during Joint Committee that the area.
municipalities should be responsible for gathering public input.on the
Regional Cycling Plan review and forwarding this input to the Region.
However, the City of Pickering, Town of Ajax, City of Oshawa and
Municipality of Clarington have all requested that the Region undertake
such consultation.
9.2 As such, it is recommended that the Region move forward with public
consultation for the review. If Joint Committee is in agreement with
this recommendation, staff will provide notice in the local newspapers
of an open house to provide opportunities for feedback from the public.
The Region will also make this report available in print and for
download from its website.
10. CONCLUSION AND RECOMMENDATION
1'01 It is recommended that the proposed Primary Cycling Network,
implementation framework, funding approach and communication
strategy directions be released for public consultation and comment
from the area municipalities.
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Report No.: 2012-J-18 Page No. 22
I
A
AV .
A. L. Georgieff, MCIP, RPP, Cli d MB
Curtis, P.Eng., A,
Commissioner of Planning and C mmissioner of Works
Economic Development
Clapp, . J. K le, D, MHSc, CCFP, FR
Commissioner f Finance Commissioner & Medical Officer of
Health
RECOMMENDED FOR PRESENTATION TO COMMITTEE
Garry H. Cubitt, M.S.W.
Chief Administrative Officer
Attachments: 1. Designated Cycling Spines — Regional Cycling Plan
2008
2. Area Municipal Comments on Preliminary Network
3. Communication Strategy Directions
4. Facility Treatment Types
5. Understanding the Needs of Cyclists
6. Roadway Characteristics
7. Map 1A— Proposed Primary Cycling Network
(Region)
8. Map 1B — Proposed Primary Cycling Network (South
Durham)
9. Map 2A— Proposed Cycling Treatment Types
(Region)
10. Map 2B- Proposed Cycling Treatment Types (South
Durham)
11. Map 3A- Phasing, Short Term (Region)
12. Map 3B — Phasing, Short Term (South Durham)
13. Map 4A— Phasing, Long Term (Region)
14. Map 4B— Phasing, Long Term (South Durham)
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r Include Nash Rd.&Reg.Rd.57
Include Highway 2/King St. on Interim Basis until Longworth Ave. t 1
As"Cycling Spine" k is Extended from Reg.Rd.57 to 4
(Multi Use Path/Cycle Lane) Green Rd.)
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Concession Rd 3 _
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d 7 m
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MAP GROV
Concession Street
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_ Include Aspen Springs Dr. �}
as Link to Future GO Transit II a 9
o (Cycle Lane)
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Include the Waterfront Trail Lake
Ontario
as Part of the Primary Cycling
Network 1:60,000
ORONO
o' 0' PROPOSED PRIMARY CYCLING NETWORK
0'
{ '� m � BUFFERED CYCLE LANE
d a
CYCLE LANE
oncession
o \ Nl orY MULTI USE PATH
j� v PAVED SHOULDER
—° o "a SIGNED
2 ✓J m c u �' ° SUGGESTED REVISIONS TO PRIMARY CYCLING NETWORK
0 0 N
a_° J ADDITIONS TO NETWORK
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REMOVALS FROM NETWORK
� �Conces.ion Rd 4 U
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W
Gy ti u o 0 U'
c Concessio n Rd ` `�-/\ ,..>, •_. -` Conce % n Rd 3
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�Include Highway 2 East of - o Q
o Include Regional Road 17 Newcastle as a Link to the �'' z
0 17 between Edward St& Northumberland System o _o
° Conc.Rd.3. �° w
(Paved Shoulder)
Mccullou
I ( _
EWCASTL NEWTONVILLE �, Rd
I1
2 Skop ■►
ou
3 401;
Include Highway 2/King Ave
r
Through Newcastle Core
oncession Rd 1
Me
tc m R — ■
St et 0
Remove Rudell Rd./Edward St. ak es ° ¢ ° L
In Favour of Highway 2/King Ave. hOre Rod z �
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REPORT # EGD-026-12
ATTACHMENT 5b
EAST AREA
Include the Waterfront Trail
as Part of the Primary Cycling
Network
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N i
1:60,000