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CITY OF VANCOUVER ADMINISTRATIVE REPORT |
Date: |
January 4, 2005 | |
Author: |
Jim Hall | |
Phone No.: |
604-873-7130 | |
RTS No.: |
04561 | |
CC File No.: |
5553/1375 | |
Meeting Date: |
January 18, 2005 |
TO: |
Standing Committee on Transportation and Traffic |
FROM: |
General Manager of Engineering Services |
SUBJECT: |
City of Vancouver Cycling Program |
RECOMMENDATION
A. THAT Council receive for information this status report on the Vancouver Cycling Program.
B. THAT a new, regular, full-time Engineering Assistant IV staff position be approved in 2005 in the Neighbourhood Transportation Branch for cycling initiatives, subject to classification review. This position will be funded from an increase in the Operating Budget which will be fully recovered from the Engineering Streets Capital Budget.
GENERAL MANAGER’S COMMENTS
This report points out the significant progress that has been made on supporting cycling as a priority transportation mode since the approval of the 1999 Bicycle Plan. It also outlines the scope of the work required to complete the network outlined in that plan. It suggests referring an increased level of expenditure to the next Capital Plan in order to accelerate this work further. The level of funding recommended would take full advantage of the estimated cost sharing available from Translink and other sources, plus an additional $1 million of City funding for major cycling projects.
The Bicycle Advisory Committee has recommended a much more aggressive program of bicycle network development in their companion report. Staff have indicated that we concur with the funding estimates the BAC quotes as necessary to meet that program.
Council should give final consideration to the level of funding that will be made available to the bicycle program in the context of all of the City’s Capital spending priorities. These priorities will be identified through the Capital Plan preparation process over the next several months. If Council wishes to consider funding at the level of the BAC proposals the recommendations of the BAC report should be referred to the Capital Plan process along with the staff recommendations.
COUNCIL POLICY
Council approved the 1997 Vancouver Transportation Plan that emphasizes the need for developing more bikeways and ranks cyclists second priority after pedestrians.
Council approved the 1999 Bicycle Plan that outlines the goal to develop the bicycle network in the City to ensure a grid of bikeways approximately 1km apart.
In 2003, Council approved implementation of the Downtown Transportation Plan to improve downtown access and livability by creating a balanced transportation system that includes adjusting the road network, enhancing public transit, promoting a walkable downtown, creating a network of bike lanes, maintaining efficient goods movement, managing parking supply and implementing intelligent transportation systems.
PURPOSE
As requested by Council, the purpose of this report is to advise on the status of the City of Vancouver’s Cycling Program as approved in the 1999 Bicycle Plan and the Downtown Transportation Plan.
STATUS ON CYCLING ROUTE IMPLEMENTATION
The cycling program/route development in the City of Vancouver is based on the 1988 Vancouver Comprehensive Bicycle Plan, the 1992 Bicycle Network Study, the 1999 Bicycle Plan, and the recent Downtown Transportation Plan. Attachments “A” and “B” show the cycling routes in Vancouver (1999 Bicycle Plan) and in the Downtown peninsula (Downtown Transportation Plan). The Attachments display the completed routes and future, planned routes.
To date 23 bikeways (over 150 km) have been completed or are about to be completed as part of this network (Attachment “C”). About 60% of the network has been built. In 2004, the Trans-Canada Trail connection to Burnaby was completed, bike-lanes on Georgia Street and Pacific Boulevard striped, and the Windsor and Kent Bikeways finished. Improvements to the cycling facility on the Burrard Bridge and routes in the Downtown are a priority.
HOW IS CYCLING WORK PROGRAM DETERMINED
Cycling routes are chosen on the basis of the 1999 Bicycle Plan (and previous Plans). The following cycling routes have been or will shortly be constructed:
o Adanac Bikeway
o B.C. Parkway
o Cassiar Bikeway
o Cypress Bikeway
o Gladstone Bikeway
o Great Northern Way
o Heather Bikeway
o Inverness Bikeway
o Kent Bikeway
o Lakewood Bikeway
o Midtown Bikeway
o Mosaic Bikeway
o Off-Broadway Bikeway
o Portside Bikeway
o Seaside Bikeway
o Sunrise Bikeway
o S.W. Marine Drive Bike lanes
o Windsor Bikeway
o 1st Avenue Seaside Bypass
o 10th Avenue Bikeway
The Downtown Transportation Plan identified a number of routes in the Downtown and the current work program priority is to complete these routes as soon as possible in the Downtown. Many of the routes are in the planning and consultation stage. The Hornby and Beatty routes have already been approved by Council. The following routes have been completed:
o Georgia Street bike lanes
o Pacific-Expo bike lanes
o Pender Street bike lanes/ wide curb lane
Bicycle routes are also implemented when a Greenway is developed. Routes developed with Greenways include:
o Central Valley Bikeway
o Midtown/Ridgeway Bikeway
o Ontario Bikeway
Bicycle routes are developed as part of a redevelopment. Examples include:
o False Creek Sea-side Bike Path
o Fraser Lands Bike Path
o 33rd Avenue Bike lanes
Bicycle routes can on occasion be included with arterial improvements. The Georgia bike lanes were constructed when Georgia Street was repaved and re-curbed as part of the Stanley Park Causeway / S-curve project.
Also, cycling facilities can be incorporated into bridge upgrades, such as the Cambie Bridge pedestrian/cycling pathway.
The Bicycle Advisory Committee (BAC) and Vancouver Area Cycling Coalition (VACC) have also requested routes, such as the Gladstone route connecting the B.C. Parkway and the Midtown bike routes.
The cycling community often requests improvements along existing bikeways. Examples of some improvements that have been constructed include:
o Alma/8th refuge median
o Bike-box – Main/Union
o Cyclist Push-buttons
o Hawks/Union mini-park
o Sensors in road at semi-actuated signals
o Signage (Sea-side, cross streets, Burrard Bridge)
o 22nd /Boundary
FUTURE ROUTES
The following are the routes identified in the 1999 Bicycle Plan which have not yet been implemented (see Attachment “A” – numbers refer to the routes on the map):
o Dunbar Bike lanes (8)
o Heather Bikeway from 37th Avenue to the Fraser River (17)
o Hudson Corridor Bikeway (16)
o Kent Avenue Bikeway, west of Ontario Street (21)
o King Edward Bike lanes (14)
o Kingsway Bike lanes (9)
o Point Grey Road Bike lanes (7)
o Portside Bikeway, west of Lakewood (22)
o Victoria/Commercial Bike lanes (10)
o 1st/2nd Avenue Corridor Bikeway (20)
o 4th Avenue Bike lanes (12)
o 14/15th Avenue Bikeway (18)
o 16th Avenue Bike lanes (13)
o 22nd Avenue Bike lanes (11)
o 49th Avenue Bike lanes (15)
o 59th Avenue Bikeway (25)
The Downtown Transportation Plan identified the following future routes (with proposed year of implementation) (Attachment “B”):
o Adanac-Pender Bikeway Connector (2005)
o Beach Avenue (2006)
o Burrard southbound Bike lane (2005)
o Cardero Bikeway (2005)
o Chilco Bikeway (2005)
o Georgia/Dunsmuir Viaducts Bike lanes (2006)
o Nicola/Alberni/Jervis/Haro/Smithe Bike lanes (2006)
o Pacific Boulevard (2006+)
o Pender/Dunsmuir Street Bike lanes (2005)
o Richards Southbound Bike lanes (2005)
o Science World Cycling Improvements/pedestrian-cyclist conflict-reductions (2005)
o West End Bike-friendly streets (2005)
Council has asked for a report back on cycling facilities on Homer, Robson and Gerogia Streets.
The Greenways Plan includes the following future Greenways and associated bikeways:
o Camosun Bikeway
o Carrall Bike-lanes or recreational pathway (2006)
o Comox/Helmcken Bikeway (2006)
o C.P. Railway Corridor Bike Pathway
o Eastside Crosscut
o Fraser River Trail
o Harbour Route
o Lagoon Drive Bikeway (2006)
o 59th Avenue Bikeway
New developments have cycling facilities associated with them, including:
o Convention Centre Cycling facilities (2005)
o Pacific Boulevard Bike lanes (2005)
o RAV – Cambie Bike lanes (2007)
o S.E False Creek Cycling facilities (2006)
o Valley/Trafalgar Bikeway (2005)
o 29th/Nanton/33rd Bikeway (2005)
Arterial improvements which could create new cycling routes include:
o Beatty Street Bike lanes (2005)
o Dumfries Bikeway (2006)
o Granville Street Transit Mall Bike facility
o Neighbourhood Collector Streets - Balaclava/Carnarvon Bikeway (2005)
o 4th Avenue Bike lanes (2005)
Improved cycling facilities on the False Creek bridges have been identified:
o Burrard Bridge (2005)
o Cambie Bridge Bike lanes/Westside sidewalk pathway
o Granville Bridge
Generally the priority for the cycling work program is to work on the Downtown routes identified in the Downtown Transportation Plan. However, staff resources are allocated on a priority basis to any new developments/projects that include cycling facilities. For example staff is working on cycling facilities on the:
· Carrall Greenway
· all the new developments mentioned above
· all the arterial improvements mentioned above
· the Burrard Bridge
OTHER CITY OF VANCOUVER CYCLING INITIATIVES
The City educates and encourages more cycling through initiatives such as:
o CanCart loan program
o June Bike Month – signs around City/bike route openings/bicycle repairs/cycling training
o Route maps
o Cycling brochures (Cycling on City Streets, Bike boxes)
o Cyclist push-buttons
o Traffic calming measures on bike routes
o Bike boxes
o A cycling web page at www.vancouver.bc.ca\cycling
o A telephone hot-line for suggestions
o Bike squads for Police and Parking Enforcement
Cyclist push-button Bike-box at Union/Main
The City has been recognized for its cycling initiatives:
· Bicycling Magazine – Top 10 Award – The Best Cities for Cycling
· Cycling B.C. – Silver Spoke Award to the City of Vancouver for expanding the bikeway network and enacting the Bicycle Parking By-Law
· Kane County, Illinois – best practices – “Vancouver has an innovative street sign system that identifies bicycle routes. This signage scheme guides bicycle users along a bicycle route and serves notice to motorists that bicycles will be present on the roadway. Street name blades along bikeways contain a bicycle logo and features a green and white bicycle symbol on a black street name sign. Overhead street name blades contain a bicycle logo at all signalized intersections along the bikeway.”
STATUS ON CYCLING MODE SPLIT
Vancouver’s bikeways have been effective in encouraging more people to cycle. In the last Canada-wide census (1996), Vancouver had one of the highest cycling modal splits. Over a recent 5 year period, bike trips have more than doubled to about 3% (1999 TransLink Trip diary). This trend is consistent with the 1997 City of Vancouver Transportation Plan which encourages modes of transportation other than the automobile. The development of the bicycle network will be continued to reflect the high priority of cycling as a transportation mode.
CYCLING BUDGET
The funds for the cycling plan are provided in the City of Vancouver 3-year capital plans. Staff are currently receiving submissions for the next 3-year capital plan. All submissions will be evaluated and submitted to Council, noting restrictions on Capital Plan limits (budget/debt considerations). Attachment “D” shows funding levels over the last two plans, as well as preliminary funding to be submitted for review for the 2006-2008 Capital Plan. The $4.3 million submission represents over a 50% increase over the last Plan which seems reasonable given that cycling is a priority, sustainable transportation-mode
The 2003-2005 Capital Budget provided $2.8 million for the bicycle network. This represents about 5% of the total $59.935 million Streets/Transportation budget. Also $5 million is approved for the Burrard Bridge Traffic/Bicycle/Pedestrian Upgrade. This $7.8 million ($2.8+$5) allocation represents about 13% of the total Streets/Transportation Capital Budget.
The status of projects in the current 2003-2005 Capital Plan is listed in Attachment “E”. Cost-sharing funding is currently available from TransLink. The TransLink cycling budget and allocations are shown in Attachment “F”. Vancouver receives a municipal allotment based on population. This municipal allotment is $455,356 for 2005. Also, TransLink has funding for regional significant projects ($850,000 in 2005). The City of Vancouver submissions for TransLink cost-sharing are listed in Attachment “G”. TransLink has ranked the projects of regional significance and five Vancouver projects have been approved (Attachment “H”). Vancouver is taking full advantage of TransLink cost-sharing opportunities.
The Province has recently announced the re-introduction of the cycling program whereby Provincial funds are available for cost-sharing cycling projects: Cycling Infrastructure Partnerships Program (CIPP). One of the stringent requirements for the first year is that a cycling project must be completed by March 2005. Given the weather restrictions on construction, we are unable to apply for funding in 2004; however, we would expect to submit cycling projects for the 2005/2006 program year.
COST TO COMPLETE THE CYCLING NETWORK
Attachment “I” lists the cycling projects that are not yet completed. For the Downtown Transportation Plan, the cost to complete these projects is over $3 million. For the 1999 Bicycle Plan, the cost to complete these projects is over $13 million. Thus, about $17 million would be required to complete the current Plans. It should be noted that this does not include other projects that will likely come up such as cycling interfaces with RAV or cycling facilities on the Granville and Cambie Bridges.
The following cycling cost-sharing programs are available:
TransLink – Municipal allocation – about $500,000 per year
- Regional allocation - about $400,000 per year
Provincial Cycling Network Program – about $200,000 per year
Thus, there is about $1.1 million per year available to supplement City funds on the basis of a 50-50 cost sharing. Over the three year period corresponding to our Capital plan (2006-2008), there could be about $3.3 million available to match City funds. The preliminary plan for the next City of Vancouver three year capital plan is $3.3 million for cycling, plus an extra $1 million for major cycling projects such as Point Grey Road (Attachment “D”). Thus the current requested level of funding is at a level to take advantage of current cost-sharing programs. If we are successful in getting these matching funds, we could fund about $6.6 million of cycling infrastructure through 2008. Given the $1 million extra funds for major cycling projects, this leaves about a $9 million shortfall ($17-$6.6-$1) if the desire is to complete all these projects sooner. It is noted that there would not be cost-sharing on this additional work. It is felt that the current 2006-2008 Capital Plan request of $3.3 million for the Bicycle Network plus an additional $1 million for major cycling projects sufficient to expand the bicycle network while taking advantage of cost-sharing programs. At this level of expenditure, all identified cycling routes could be funded by about 2012.
STAFF RESOURCES
Besides funding, another requirement to complete these projects sooner is sufficient staff resources. The City has taken the approach that cycling routes must be planned and built in consultation with concerned stakeholders such as community/neighbourhood groups, the Bicycle Advisory Committee, and other advocacy groups. Staff must design the facilities, report to Council, and construct the facilities. Furthermore, projects are monitored and adjusted after completion. This procedure results in a better quality product with broad public support, but it does require greater commitments of staff time.
Currently, we are completing about 10 km of cycling facilities per year (Attachment “C”). The uncompleted projects represent over 100 km of cycling facilities. Thus with the current staff levels, these projects might be completed in about 10 years (100km/10km per year). If Council wishes to accelerate this program, additional staff would be needed. In recognition of the 50% increase requested in the next 3-year City of Vancouver Capital Plan, TransLink’s 33% increase in cycling funding over the last year, and the new funding in the Province’s CIPP Program, an additional Engineering Assistant IV staff position for cycling initiatives is recommended to be recovered through the Engineering Streets Capital budget with no increase to the Operating Budget. Also, to help with the cycling workload, Engineering has submitted a 2005 Operating Budget request of $12,000 for an increase in the Neighbourhood Transportation Temporary Help account for a summer co-op student to help with cycling projects.
BICYCLE ADVISORY COMMITTEE COMMENTS
The Bicycle Advisory Committee has reviewed this report and has submitted a companion report which provides recommendations for a more aggressive program for cycling.
COMMENTS ON BICYCLE ADVISORY COMMITTEE COMPANION REPORT
Staff has proposed a capital budget increase and an additional staff member which takes advantage of existing cost-sharing programs and should allow completion of the network by about 2012-2014. The Bicycle Advisory Committee is recommending an accelerated program with increased capital funding and staff resources to complete the cycling network by 2008, in time for the 2010 Olympics. By 2010, they seek to achieve a 10% modal split. Staff note that this increased capital funding would likely not be cost-shared through other programs (i.e. 100% City cost).
Staff has consulted with the Bicycle Advisory Committee and concur with their recommendations, if an accelerated cycling program is supported by City Council. If Council does wish to accelerate the cycling program, staff will prepare a detailed submission for the 2006-2008 Capital Plan based on the Bicycle Advisory Committee recommendations.
FINANCIAL AND PERSONNEL CONSIDERATIONS
The preliminary 2006-2008 capital plan submission of $4.3 million will be evaluated with all the other City of Vancouver Capital Plan submissions. The Temporary Help request will be evaluated as part of the Operating Budget Review. The new permanent Engineering IV staff position can be recovered through the Engineering Streets Capital Budget.
SUMMARY
Vancouver’s cycling modal split is high compared to other Canadian cities (1996 census), and has doubled since. To expand the cycling network, Vancouver is taking advantage of cost-sharing opportunities such as TransLink, Province (CIPP), new developments and arterial improvements. A 50% increase in capital funding has been submitted to the 2006-2008 Capital Plan program, as well as an additional staff resource. Priorities for route expansion are based on the Downtown Transportation Plan and the 1999 Bicycle Plan, both of which were developed with significant public input. These priorities are dependent on opportunities which evolve such as new developments (RAV) and arterial improvements (4th Avenue). If Council wishes to accelerate the cycling program, staff will prepare a detailed submission for the 2006-2008 Capital Plan based on the Bicycle Advisory Committee recommendations.
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