HomeMy WebLinkAboutCS 45-12 City o4 Report to
Executive Committee
PICKERI1vG Report Number: CS 45-12
Date: September 10, 2012 7
From: Everett Buntsma
Director, Community Services
Subject: City of Pickering Comments on the Regional Cycling Plan Review
- File: A-1140
Recommendation:
1. That Report CS 45-12 of the Director, Community Services regarding the
Regional Cycling Plan Review be received;
2. That Council advise Regional Council that it supports:
a) the proposed Primary Cycling Network as set out in Attachment#2 to Report
CS 45-12;
b) the proposed Cycling Treatment Types as set out in Attachment #5 to Report
CS 45-12 subject to incorporating the treatment types for Regional Roads in
Seaton as shown on the Cycling and Pedestrian Facilities Map in the
Regional Class EA for the Central Pickering Development Plan;
c) the Region's proposed funding change for paved shoulders on Regional
Roads 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 on
Regional Roads;
d) the Region continuing 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;
3. That Council request Regional Council to:
a) dedicate a minimum of$500,000 annually from its Roads Capital Program to
fund the construction, repair, maintenance, monitoring and promotion of the
Regional Cycling Plan;
b) revise its practice where the Region is only responsible for providing the
platform for multi use paths within Regional Road rights-of-way, such that it
also be responsible for 50/50 cost sharing with area municipalities for
construction costs (i.e. granular and asphalt), signage, marking and other
amenities;
Report CS 45-12 September 10, 2012
Regional Cycling Plan Review Page 2
4, A
c) include a revision to the current Regional policy such that the implementation
of the Regional Cycling Plan is not confined strictly to correspond with road
construction projects, but rather be prioritized and constructed, as
appropriate, to close gaps and facilitate key connections along road segments
that are not necessarily due for reconstruction;
d) direct Regional staff to prepare a more detailed phasing program, in 5 year
increments, for the 2017-2032 time frame; and
4. Further, that the City Clerk forward a copy of Report CS 45-12 to the Regional
Municipality of Durham and all local municipalities in Durham Region.
Executive Summary: The Region of Durham is currently undertaking a review of
its Regional Cycling Plan. On February 21, 2012, City Council requested Regional staff
to: include a commitment for continuous funding to address the construction, repair,
maintenance, monitoring and promotion of the Regional Cycling Plan; revise the current
Regional policy to consider closing network gaps to facilitate key cycling connections
independent of road construction along cycling spines; and, provide for further public
consultation.
The draft updated Regional Cycling Plan report was released on June 6, 2012, with
comments from area municipalities due by September 30, 2012. Staff has reviewed the
Region's report and generally supports the Primary Cycling Network as it now includes
other Regional Roads such as Altona Road, Finch Avenue and Liverpool Road. This
enhanced cycling network builds on Pickering's cycling initiatives with strategic
connections to downtown Pickering, the GO Station and the waterfront. The proposed
treatment types (i.e. cycling lanes, buffered cycling lanes, cycling tracks, multi use
paths, paved shoulders) proposed on Regional Roads are supported by staff.
Additional treatment types for Seaton, as identified in the Region's EA for the Central
Pickering Development Plan, must be incorporated.
To ensure that there is continuous, reliable and sustainable funding to support the
Regional Cycling Plan Network, it is recommended that the Region dedicate a minimum
of$500,000 annually from its Roads Capital Program to fund the construction, repair,
maintenance, monitoring and promotion of the Regional Cycling Plan.
Financial Implications: There are short and long term financial implications to the City
regarding the Regional Cycling Plan. For the short term, 2012 to 2016, the preliminary
capital financial projection for Pickering for cycling facilities on Regional Roads is
$942,000. It is anticipated that this amount will be funded from Development Charges
and the City Share Reserve.
Report CS 45-12 September 10, 2012
Regional Cycling Plan Review Page 3
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For the longer term, 2017 to 2032, the preliminary estimate for Pickering for cycling
facilities on Regional Roads is $4.4 million in total. Finance staffs preliminary funding
strategy related to this capital cost is to use a combination of property taxes, Federal
Gas Tax (FGT) and Development Charges. The above amount excludes the additional
Pickering cost to build or implement cycling facilities on local roads, needed to connect
to the Primary Cycling Network.
The capital construction cost represents only one component of the total cost. After the
cycling facilities are constructed, additional City resources would be required to inspect,
monitor and maintain off-road cycling facilities on an annual basis. Also, insurance
claim costs associated with off-road cycling facilities on Regional road rights-of way will
be the City's responsibility.
Discussion:
Overview
On June 8, 2011, Regional Council requested the eight local municipalities to
suggest modifications to the current Regional Cycling Plan
The current Regional Cycling Plan was approved by Regional Council in October 2008
(see Attachment#1 — Existing Regional Cycling Plan). On June 8, 2011, Regional
Council requested the eight local municipalities to provide suggestions for modifications
to the Regional Cycling Network by September 2011 as input into an updated Regional
Cycling Plan.
On October 17, 2011, City Council endorsed Report CS 39-11 and recommended
changes to the Regional Cycling Plan
On October 17, 2011, Council endorsed Report CS 39-11 that contained staffs
recommended modifications to the Regional Cycling Plan to add existing and future
Regional roads as Regional Cycling Spines, such as Altona Road, Finch Avenue,
Westney Road, Liverpool Road and future roads in Seaton such as the Whitevale Road
By-pass, Rossland Road (Third Concession Road) extension, and Whites Road
extension.
Staff also recommended that the funding formula be revised such that the Region be
100% responsible for the cost of paved shoulders, on-road and off-road cycling lanes
and that the cost of construction for multi use bikeway paths be equally shared between
the Region and the City instead of solely by the City.
Report CS 45-12 September 10, 2012
Regional Cycling Plan Review Page 4
; 6
On February 21, 2012, City Council endorsed CS 09-12 and requested Regional
Council to include a number of changes including a commitment for sustainable
funding
On February 21, 2012, Council endorsed staff comments contained in Report CS 09-12
that requested the Region to provide area municipalities sufficient time to review and
comment on the draft updated Regional Cycling Plan. Also, the Region was requested
to: include a commitment for continuous, reliable and sustainable funding to address the
construction, repair, maintenance, monitoring and promotion of the Regional Cycling
Plan; revise the current regional policy to consider closing network gaps to facilitate key
cycling connections independent of road construction along cycling spines; and modify
the current work plan to require further public consultation.
On June 6, 2012, Regional Council released the proposed Regional Cycling Plan
for public consultation
On June 6, 2012, Regional Council released Commissioners' Report No. 2012-J-18
containing the proposed Primary Cycling Network (Regional Cycling Plan) and
implementation framework for public consultation. Area municipal councils were
requested to comment on the proposed Primary Cycling Network and implementation
framework prior to September 30, 2012.
Comments
Staff's review has focused on the Regional Cycling Plan as it affects Pickering (Part A—
Primary Cycling Network, Treatment Types and Phasing) and the implementation
framework (Part B — Capital Costs, Funding Strategies and Risks and Liabilities).
Part A - Regional Cycling Plan
Primary Cycling Network
Staff generally supports the proposed Primary Cycling Network as it now
includes the addition of Altona Road, Finch Avenue, Liverpool Road and future
Regional Roads in Seaton
The proposed Primary Cycling Network is based on routes that connect major centres,
inter-modal facilities and destinations; and provides service between communities, area
municipalities and other regions (see Attachment#2 - proposed Primary Cycling
Network for South Durham). Staff have enlarged the proposed Cycling Network for the
Pickering area (see Attachment#3 - draft Primary Cycling Network for Pickering).
The Primary Cycling Network includes 205.6 kilometres of cycling facilities on Regional
roads of which 72.2 kilometres (35.1%) are in Pickering. The network in Pickering has
evolved to include the following additions:
• Altona Road from Kingston Road to Finch Avenue
• Finch Avenue from Brock Road to Altona Road
Report CS 45-12 September 10, 2012
Regional Cycling Plan Review ' Page 5 %.
• Liverpool Road from Finch Avenue to Pickering Parkway; and
• future roads in Seaton such as the Whitevale Road By-pass, Rossland Road
(Third Concession Road) extension and Whites Road extension
In recognition of the implementation constraints at the Highway 401 crossings on
Brock Road and Liverpool Road, staff supports an alternate cycling route on
Pickering Parkway between Brock Road and Liverpool Road
Staff concurs with the Region's assessment regarding bikeway implementation
constraints at the Highway 401 crossings on Brock Road, Liverpool Road and Whites
Road. These sections of the above-noted roads remain part of the Primary Cycling
Network and the provision for cycling facilities at these locations will be considered with
future Ministry of Transportation interchange/bridge improvement projects.
In the interim, the Region is proposing an alternate cycling route on Pickering Parkway
between Brock Road and Liverpool Road leading to the pedestrian bridge over Highway
401. Although Pickering Parkway is under the jurisdiction of the City, this connection
would provide a safer route for cyclists accessing either the GO Station or Bayly Street.
The feasibility of a cycling facility on Pickering Parkway was assessed earlier in the
City's Bikeway and Trail Master Plan (1996) and identified as a potential cycling spine.
However, the recommendation for a cycling facility on Pickering Parkway was not
implemented.
In recognition of the constraints on Bayly Street between Liverpool Road and
Whites Road, staff supports an alternate cycling route on local roads
The provision of cycling facilities on Bayly Street between St. Martins Drive and
Liverpool Road is constrained due to grading issues, utilities, and limited right-of-way
width. As an alternative to cycling facilities on Bayly Street between St. Martins Drive
and Liverpool Road, staff concurs with the Region's proposal to identify and assess an
alternate cycling facility from St. Martins Drive to Radom Street, and Radom Street to
Liverpool Road. Cycling facilities are feasible on Bayly Street from St. Martins Drive to
West Shore Boulevard including a connection to the Waterfront Trail at the West Shore
Community Centre. The cycling segment from West Shore Boulevard to Whites Road
is similarly constrained and requires further assessment.
Further assessment is required on City roads (i.e. Finch Avenue west of
Altona Road, Notion Road, Rougemount Drive and Seventh Concession Road)
prior to being identified as regional cycling spines
In order to complete the cycling network in Pickering, the Region is proposing that some
local roads be considered (i.e. Finch Avenue west of Altona Road, Notion Road,
Rougemount Drive and Seventh Concession Road). These road segments require
further assessment in terms of existing road conditions, feasibility, and safety.
Therefore, it is premature to identify these roads until discussions have concluded. It is
Report CS 45-12 September 10, 2012
Regional Cycling Plan Review Page 6
also important to note that Notion Road is a boundary road between the City and the
Town of Ajax, with maintenance responsibilities resting with the Town of Ajax.
Staff reiterates its previous request that the current Regional policy be revised to
consider the implementation of cycling facilities independent of road
construction to close network gaps and facilitate key cycling connections
Staff had previously commented that the current Regional policy on constructing cycling
facilities should be revised to allow the implementation of cycling facilities independent
of road construction projects in order to close gaps and facilitate key cycling
connections. Regional Report No. 2012-J-18 did not discuss this request. Therefore,
staff reiterates its previous request to the Region to consider the implementation of
cycling facilities to close network gaps independent of road construction projects.
Treatment Types
Staff generally supports the proposed Cycling Treatment Types for Regional
Roads in Pickering
Once the Primary Cycling Network was identified, potential treatment types were
selected (i.e. cycling lanes, buffered cycling lanes, cycling tracks, multi use paths,
paved shoulders). Consideration was given to corridor-specific characteristics, such as
higher commercial vehicle volumes, multiple driveways, on-street parking, safety and
right-of-way constraints (see Attachment#4 - Proposed Cycling Treatment Type for
Pickering). Staff is generally supportive of the treatment types being proposed for
Regional Roads in Pickering, with the exception of Finch Avenue as noted below.
Staff supports 1.5 metre wide on-road cycle lanes on both sides of Finch Avenue
from Rosebank Road to Brock Road instead of a 3.0 metre multi use path
The Region is proposing paved shoulders on Finch Avenue from Altona Road to
Rosebank Road and a 3.0 metre multi use path from Rosebank Road to Brock Road.
Finch Avenue from Altona Road to Brock Road is a Type B Arterial Road with
residential developments on both sides. The traveled portion of Finch Avenue provides
an alternative cycling route with enhanced safety due to relatively low operating speeds
and traffic volumes. For these reasons, staff recommends 1.5 metre wide on-road cycle
lanes on both sides of Finch Avenue from Altona Road to Brock Road.
Staff supports a revision to the Cycling Treatment Type for Regional Roads in
Seaton to reflect the Region's refinement of the treatment types undertaken as
part of the Region's Class EA for the Central Pickering Development Plan
A further refinement of the treatment types for Regional Roads in Seaton has resulted
as part of the Region's Class EA for Regional Services for the Central Pickering
Development Plan. This was shown at the June 27, 2012 Public Information Centre #2
. for the Region's Class EA for the Central Pickering Development Plan (see Attachment
Report CS 45-12 September 10, 2012
Regional Cycling Plan Review Page 7 r�
#6 — Cycling and Pedestrian Facilities Map). Staff supports the revised treatment types
for Regional Roads in Seaton as it promotes increased cycling opportunities both on
and off-Regional Roads.
Therefore, it is recommended that the Cycling Treatment Type for Pickering be revised
to also incorporate the treatment types shown on the Cycling and Pedestrian Facilities
Map for the Region's Class EA for the Central Pickering Development Plan.
Phasing
Staff generally supports the time frame for implementing the Primary Cycling
Network
The Region is proposing two general time frames to implement the proposed network:
short term 5 year (see Attachment #6 — Network Phasing 2012-2016 Pickering) and
longer term 6-20 years (see Attachment#7 — Network Phasing 2017-2032 Pickering).
These time frames are based on planned road rehabilitation or road expansion work.
The short term time frame, 2012-2016, for specific network projects in Pickering is
acceptable.
In the short term, Brock Road is the only Regional Road within the Primary Cycling
Network under construction in Pickering. The Brock Road segments under construction
in the 5 year period and the associated City cost for the cycling treatment is provided
below:
Proposed. Primary Network Phasing (2012-2016)
Year Brock Road City Cost Funding
2012 Third Concession $453,000 Development
Road to Taunton Charges (DC)
Road Funding is 50% DC
and 50% City Share
Reserve
2013 Pickering Parkway $88,000 Same as above
to Finch Avenue
2015 Fifth Concession $194,000 Part of ongoing
Road to North of negotiations with
Brougham Seaton Landowners
Group
2016 Taunton Road to $207,000 Part of ongoing
Fifth Concession . negotiations with
Road Seaton Landowners
Group
Report CS 45-12 September 10, 2012
Regional Cycling Plan Review Page 8
� f
Based on the Region's 2012 Capital Road Program and Four-Year Forecast,
Brock Road improvements from Taunton Road to the Hamlet of Brougham will be
implemented by the end of the year 2016.
The subsequent long term time frame from 2017 to 2032 is too general and lacking
detail for staff to develop a meaningful implementation schedule. It is recommended
that the 2017-2032 time frame be broken into 5 year increments to assist area
municipalities in their capital forecast and budget approval process.
The cost for the City is $541,000 for the years 2012 and 2013 of which 50% would be
funded by Development Charges and the remainder funded from the DC City Share
Reserve. There are sufficient funds in this reserve to meet the financial obligations.
For the years 2015 and 2016, these costs are part of the ongoing discussion and
negotiations between the City and the Seaton Landowners Group.
Part B — Implementation Framework
Funding Strategies
Staff supports a continuous, reliable and sustainable funding program in order to
implement a successful.Regional Cycling Plan
There is a need for the Region to dedicate continuous, reliable and sustainable funding
to implement a successful Regional Cycling Plan. In Report No. 2012-J-18 on the
Regional Cycling Plan, information is provided on how other two-tier southern Ontario
municipalities fund cycling. For example, York Region and Waterloo Region provide
$500,000/year and $600,000/year respectively toward their cycling programs.
In order to implement a successful Regional Cycling Plan, staff is recommending that
the Region consider committing a minimum $500,000 annually in its capital budget for
cycling infrastructure. The long term, 2017 to 2032, financial projection from the Region
based on the current funding relationship is for the City to pay $4.4 million for multi use
paths on Regional Roads. The preliminary funding strategy related to this expenditure
is to use a combination of property taxes, Federal Gas Tax (FGT) and Development
Charges. The development charge funding will be explored in depth in the next study
which is required to be completed by June 30, 2014.
Capital Costs
Staff supports the proposal for the Region to be 100% responsible for the capital
construction costs for all on-road cycling facilities and paved shoulders
The Region is proposing that for all on road cycling facilities and paved shoulders,
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
• Report CS 45-12 September 10, 2012
Regional Cycling Plan Review Page 9 3;
relocation, bridge structures and ongoing regular maintenance. Staff supports the
proposal for the Region to be 100% responsible for on-road cycling facilities such as
bike lanes, paved shoulders and signed-only bike routes on Regional roads.
Staff recommends a change to the current practice of the Region being 100%
responsible for only providing the platform for a multi use path, to also include
construction costs (i.e. granular and asphalt), signage, marking and other
amenities being shared 50/50 between the Region and the area municipality
The Region is currently responsible for constructing the platform for off-road boulevard
bikeways (multi use paths) that are in the Regional Road rights-of-way. The cost also
includes land acquisition, utility relocation, and grading and customized bridge
structures. The cost of granular, asphalt, signage, marking, path maintenance and
repair is the responsibility of area municipality. No change to this practice is proposed
by the Region.
Staff continues to recommend that this practice be changed such that all construction
costs (i.e. granular, asphalt), signage, marking and other amenities be shared 50/50
between the Region and the area municipality, since the multi use path also
accommodates cyclists.
Risks and Liabilities
The insurance risk associated with implementing the Primary Cycling Network is
manageable and no different than current practice
The City is responsible for maintenance and insurance claims for those multi use paths
constructed on Regional Roads paid for by the City. The maintenance element includes
inspection (documentation), repair and perhaps even snow and ice removal (depending
upon the City's preference to keep the trails open during the winter months.) The
larger unknown cost and corresponding financial risk is the potential insurance claims
that could be generated from the cycling facilities . The individuals using the cycle
system will range in age from pre-teens to seniors representing a wide range of cycling
skill level and experience.
The City has to ensure that the cycling facilities are maintained in a state of reasonable
repair and free of hazards. Regular inspections and documentation by the City will
prevent and/or reduce insurance claims. The insurance risk associated with the cycling
facilities is manageable. However, Council should be aware that additional resources
(staff and equipment) would be required.
Report CS 45-12 September 10, 2012
Regional Cycling Plan Review Page 10
2
Attachments:
1. Existing Regional Cycling Plan
2. Proposed Primary Cycling Network for South Durham
3. Proposed Primary Cycling Network for Pickering
4. Proposed Cycling Treatment Type for Pickering
5. Cycling and Pedestrian Facilities
6. Network Phasing (2012-2016)
7. Network Phasing (2017-2032)
Prepared By: Approved/Bndorrs dByf
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Richa d W. Ho orn, P.Eng Everett Buntsma, NPD, CMM
Division Head, Engineering Services Director, Community Services
jillid:/71Lif:lr. 4. dr.'41'''
Grant McGregor, MCI RPP Neil Carry , ' ', RPP
Principal Planner - Policy Director, Planning & Development
Stan Karwowski Gillis Paterson, CMA
Manager, Finance & Taxation Director, Corporate Services & Treasurer
GM:jf
Recommended for the consideration
of Pickering Cit Council
4) ,40.iele
Ale. 2-7/ 1012.
Tony Prevedel, P.Eng.
Chief Administrative Officer
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