ADMINISTRATIVE REPORT

TO:

Standing Committee on Transportation and Traffic

FROM:

General Manager of Engineering Services in Consultation with the Director of City Plans

SUBJECT:

TransLink 10 Year Transportation Outlook and Three-Year Financial Strategy

 

RECOMMENDATION

A THAT City Council advise TransLink that it generally supports the 10 Year Transportation Outlook and Three-Year Financial Strategy but has a number of comments and requests as itemized below.

TRANSIT

B1 THAT TransLink establish a methodology for allocating transit services based on serving existing unmet demand first, before expanding transit services to serve new markets.

B2 THAT the Three-Year Financial Strategy be flexible enough to address new or emerging needs that may be identified in the Vancouver Area Transit Plan, beyond the funding allocation already contemplated for Vancouver.

B3 THAT the City continue to work with TransLink staff to identify and implement those measures which facilitate the efficient movement of bus services within the City.

B4 THAT TransLink be requested to continue and expand its programs which collect and analyze data for improved decision making in the allocation of transit services and in the overall development of the transportation system.

C1 THAT Council reiterate its request that TransLink broaden the project criteria eligibility and cost-sharing flexibility of its current capital programs (Major Capital, Minor Capital, Transit Related Road Infrastructure, and Bicycle Infrastructure) to ensure that municipalities can optimize delivery of their regionally significant road, transit, cycling, or pedestrian projects.

C2 THAT TransLink be requested to initiate a more rigorous planning process to validate a priority listing of capital projects and, further, to ensure each project contributes to the development of an efficient overall road network.

C3 THAT TransLink proceed with the Major Capital projects, only after making every effort to obtain senior government cost sharing.

C4 THAT Council advise TransLink that its current policy is to maintain peak road capacity into the City at current levels, with no further significant investment to expand motor vehicle capacity into Vancouver .

C5 THAT Council advise TransLink that it is not prepared to relinquish local control and decision making for the portion of the Major Road Network in Vancouver.

CYCLING

D1 THAT Council advise TransLink that the funding levels budgeted for cycling are inadequate to meet the cycling needs of the Region and that increased capital budgets are required.

RAPID TRANSIT

E1 THAT TransLink be requested to advance to 2004 the timing of the study to develop design options to extend the Millennium Line to Central Broadway and potentially UBC, and to include funding to initiate this extension within the 10 Year Outlook.

E2 THAT Council request TransLink work with staff to develop a plan that integrates the downtown streetcar system into the transit network and to jointly seek a senior government funding contribution.

TRANSPORTATION DEMAND MANAGEMENT

F1 THAT the City support TransLink's efforts to emphasize the development of a Transportation Demand Management (TDM) program that further encourages employer and institutional based incentives (e.g. U Pass), user pay mechanisms (e.g. distance based insurance) and other measures to encourage more sustainable transportation choices.

F2 THAT TransLink be requested to develop a regional parking strategy as a key component of a TDM package.

F3 THAT TransLink be requested to expand its communication program, which educates and markets more sustainable transportation choices.

F4 THAT TransLink organize a TDM workshop for both regional and municipal participants as soon as possible, to explore additional opportunities for encouraging more sustainable transportation choices.

GOODS MOVEMENT

G1 THAT TransLink, working with the municipalities, continue to explore strategies to improve the flow of goods and services.

G2 THAT TransLink work with the Province and municipalities on the potential shared use by trucks of the regional HOV lanes.

FUNDING

H1 THAT Vancouver and TransLink continue to press the Federal Government for funding support to address urban transportation problems and, further, that a portion of this funding be allocated directly to the municipalities to address municipal transportation needs.

H2 THAT TransLink be requested to defer any fare increase until 2007 when service improvements are in place.

H3 THAT TransLink be advised the City wishes to retain the zonal fare structure with consideration of reduced fares for shorter trips (e.g. a reduced fare zone Downtown) and with appropriate adjustments to provide incentives to increase ridership, until the overall fare strategy is reviewed.
H4 THAT City Council reject the notion of an increased `ad valorem' tax on pay parking and request TransLink to establish a more equitable regional basis for any parking fees or taxes.

LAND USE

COUNCIL POLICY

Key transportation and land use policies include:

Transportation - Council has adopted the Transport 2021 Regional Transportation Plan, Vancouver Transportation Plan (1997), Downtown Vancouver Transportation Plan (2002) and Vancouver Transit Strategy (2002) which generally require transit and other non-auto modes to accommodate future increases in travel demand. The City supports maintaining peak road capacity from the region at no more than the present level, with no further significant investment to expand motor vehicle capacity into Vancouver.

Land Use - Council has adopted the Livable Region Strategic Plan, Vancouver Central Area Plan (1991) and Vancouver CityPlan (1995). These promote land use patterns that support the use of transit, bicycling, walking and other non-auto modes. The plans specify nodes - Downtown, Central Broadway, and Neighbourhood Centres - where residential, employment, and service concentrations reduce the need for longer distance trips and have good connectivity to the transit network.

SUMMARY

TransLink (also known as the Greater Vancouver Transportation Authority or GVTA ) has produced a discussion paper entitled ` Keeping Greater Vancouver Moving - A 10 Year Transportation Outlook and Three-Year Financial Strategy' that sets forth:

TransLink recommends the 2005-2007 service enhancements and strategy be implemented noting that funding beyond 2007 would be addressed through discussions with senior governments. TransLink is further preparing for the development in 2004 and 2005 of a new long-term (2030 horizon) transportation plan in coordination with the GVRD's updating of the Livable Region Strategic Plan (LRSP).

Staff conclude the 10 Year Outlook and Three-Year Financial Strategy document provides a number of improvements that are generally consistent with the City's Transportation strategy, and that the plan should be supported, with the requests and comments as outlined in the recommendations, as a constructive step toward achievement of the City's goals.

PURPOSE

This report:

- provides a brief outline of planned actions, costs and revenues presented in TransLink's 10 Year Transportation Outlook and Three-Year Financial Strategy document
- discusses certain key issues and implications for the City of Vancouver.
- recommends changes to the plan for consideration by TransLink

The TransLink document is available for viewing in the City Clerk's Office and at the TransLink internet site:

BACKGROUND

TransLink was created in April 1999 by the Province and GVRD in order to rationalize and localize Regional transportation planning and service delivery in coordination with Regional land use planning. TransLink's mandate includes transit, regional roads, bridges, ferry routes, cycle paths, transportation demand management (TDM), goods movement, AirCare and other facilities.

When TransLink was originally established, it was understood new revenue sources would be needed to fund regional transportation. However, when the vehicle levy was not introduced in 2000/2001, the original long range transportation and funding strategy could not be implemented. As an interim measure, prior to developing a revised plan, TransLink initiated service reductions and approved revenue measures (including additional fuel and property taxes, and fare increases) in order to stabilize programs and funding for a minimum of three years. A 2002 to 2004 Transportation Plan was approved based on this funding; however, it did not provide the level of investment required to accommodate future transportation needs.

TransLink requires a new service and funding plan in order to proceed with necessary transportation improvements after 2004. TransLink's discussion paper presents a detailed 2005-2007 plan within the context of a longer term Outlook. The schedule is for the plan to be approved by TransLink in December 2003 and by the GVRD in January 2004.

TransLink also intends to develop a new long-term (2030 horizon) transportation plan coordinated with the updating of the GVRD Livable Region Strategic Plan (LRSP).

TEN YEAR TRANSPORTATION OUTLOOK

The 10 Year Transportation Outlook represents a significant expansion in transportation services. It commits to an expanded rapid transit network, significantly expanded conventional transit services, improved regional roads and more bicycle facilities. Important elements of the plan with particular relevance to Vancouver include:

Transit

Cycling, TDM, and Other Programs

Regional Major Roadway Network (MRN)

Financial Plan

The 10-Year Outlook proposes to increase expenditures by 85%, from $640 million annually in 2003 to $1.18 billion in 2013. TransLink would have a shortfall of $370 million in annual revenue in 2013 if there are no new sources of funding or increases to existing revenue sources (see Appendix 1).

From 2005 to 2007, TransLink plans to fund the growth in annual expenditures by increasing the revenue generated from existing sources, starting in 2005, as follows:

These measures would increase annual revenues by over $90m by 2007 (see Appendix 2), resulting in a balanced budget (see Appendix 3), and an accumulated reserve or `Transportation Trust' of $151 million. The reserve would provide more flexibility in capital funding and cover any unforseen budget shortfalls.

Following 2007, if no new revenues are identified, the annual deficit would increase to about $220 million in 2013 (assuming fares keep pace with inflation). To close this gap without cutting back on programs, TransLink would have to raise more revenue locally or obtain senior government assistance.

DISCUSSION

Overview

The 10 Year Transportation Outlook is intended to address the transportation needs of a growing region. By 2030 there will be about 1 million more people in the region and about 400,000 more jobs. Recently the number of vehicles has grown at approximately twice the rate of population increase, adding 20,000 vehicles a year. Truck trips in the morning peak period are projected to increase by 31% by 2013. Many roadways are at or have exceeded peak period capacity. Vancouver is committed to no new roadway capacity into the City. Consequently, the only way to accommodate this projected travelgrowth is with increases in transit and other non-auto modes, and taking steps to manage vehicular demand.

The 10 Year Outlook is a significant step in that direction and should be supported. It contains actions regarding transit, roadways, goods movement, and TDM that are consistent with City and Regional Transportation goals. Transit service and ridership would be increased and road congestion would be addressed in key areas. The proposed increases in transit service are less than what was proposed in the previous plans contemplated when TransLink was created, including Transport 2021 and the 2000 Regional Strategic Transportation Plan; however, the 10 Year Outlook has realistic, achievable goals, especially if senior government funding is available beyond 2007 to reduce the impact on available TransLink funding sources.

It is recommended Council advise TransLink that it generally supports the 10 Year Transportation Outlook and Three-Year Financial Strategy but has a number of comments and requests as discussed below and reflected in the report recommendations above. (Recommendation A)

Transit

City Priorities for transit to be addressed by the 10 Year Outlook include:

Vancouver/UBC Area Transit Plan

Allocation of New Service

Funding for MRN Roads, Bicycles, and Pedestrians

The guidelines for the allocation of funding have not worked well in that the City's block of capital funding for major roads is unspent, while funding for major cycling and pedestrian facilities is inadequate. In July 2003, Council requested TransLink broaden the project criteria eligibility and cost-sharing flexibility of its current capital programs (Major Road Network, Minor Capital, Transit Related Road Infrastructure and Bicycle Infrastructure). This would allow for more flexible funding to respond to the City's priorities for bicycle, pedestrian and roadway priorities. (Recommendation C1)

Within the City, the clearest need for increased funding is in the development of the bicycle network. TransLink is addressing this need by increasing the allocation of bicycle capital funds from $2 million at present, per year, to $6 million in 2007. We believe more can be done and it is recommended capital funding levels be increased to develop the City and Regional bicycle networks. (Recommendation D1)

In the 2003 to 2007 Roads program, approximately $230M is available to undertake regionally significant road projects, both on and off the MRN. (This does not include the Fraser River crossing which will cost an estimated $600M and will be paid for largely by tolls.) A preliminary listing of significant road projects includes:

While none of the above projects impacts Vancouver, there are two areas of concern which should be noted. First, some of the projects were developed in the earlier Strategic Transportation Plan, while others have been added more recently based on municipal requests and only a preliminary screening. It is recommended that a more rigorous TransLink planning process be initiated to validate a priority listing of capital projects and, further, to ensure each project contributes to the development of an efficient overall road network. (Recommendation C2)

There has also been some discussion and work to develop a Gateway Program of major highway upgrades in the region. One of the projects identified is the widening of the Highway 1 corridor from the Port Mann Bridge to Cassiar (Boundary Road). This has been a preliminary planning exercise to develop a project scope and cost estimate. There are no identified funding sources for the Gateway Program and it's unlikely these projects will proceed in the short to medium term. Any expansion of major highway capacity into the City of Vancouver would also be contrary to Council policy. Rather that increasing road capacity, our transportation strategy relies on improved transit, more sustainable choices, and demand management. It is recommended Council advise TransLink that its current policy is to maintain peak road capacity into the City at current levels, with no further significant investment to expand motor vehicle capacity into Vancouver. (Recommendation C4)

Staff are concerned that TransLink may undertake major regional road projects without leveraging funding from senior governments or, to a lesser extent, municipal governments. This may take the form of either direct funding contributions or the completion of related projects which complement the effectiveness of the major road. This could reduce theeffectiveness and planned use of the Major Roads Capital fund, and set a precedent that may limit the effectiveness of future requests to senior levels of government. (Recommendation C3) requests TransLink proceed with the Major Capital projects, only after making every effort to obtain senior government cost sharing.

When TransLink was created in 1999, the City consented to the designation of the Major Road network in Vancouver on the condition that the TransLink Board adopt the Principles of Co-management which set forth the management processes and responsibilities for the MRN. These principles clearly confirm continued individual municipal control of the roadways. It is recommended that Council advise TransLink that it is not prepared to relinquish local control and decision making for the Major Road Network. (Recommendation C5)

Transportation Demand Management

The provision of transportation services, while important, is only one-half of the transportation equation. If we are to achieve the transportation goals of the City and Region, it is equally important to manage demand for services. This can occur through incentives to encourage the use of more sustainable transportation alternatives, or through measures that discourage the use of single-occupant vehicles.

Council has urged increased use of TDM as a means of managing the use of automobiles. While system-wide tolling is not permitted under current legislation, there are many TDM measures which can or are being employed including:

· education and employer based trip reduction programs, such as the "On Board" Program now being piloted in the City
· innovative fare systems, such as the "U-Pass" program
· encouragement and facilitation of van-pool efforts.

The City has initiated some TDM measures, including preferential car-pool parking, use of fleet vehicles for car-pool purposes and cycling-friendly facilities including bicycle storage, showers and lockers.

However, much more can be done in terms of both "carrots" and "sticks". If we are to generate the demand for transit, cycling and other sustainable transportation services, a more aggressive program is needed. In support of this the City is seeking a regional workshop on TDM and this has been supported by the technical representatives of the regional municipalities. The City should support TransLink giving renewed emphasis tothe development of a Transportation Demand Management (TDM) program that further encourages employer and institutional based incentives (e.g. U Pass), user pay mechanisms (e.g. distance based insurance) and other measures to encourage more sustainable transportation choices (Recommendation F1). In addition, in support of a TDM workshop at the regional level, it is recommended TransLink organize a TDM workshop for both regional and municipal participants as soon as possible, to explore additional opportunities for encouraging more sustainable transportation choices. (Recommendation F4)

As well, there is a need to educate the public on the financial, social and economic benefits of sustainable transportation choices. This can be a powerful tool in motivating more informed choice and less use of the automobile. It is recommended TransLink be requested to expand its communication program, which educates and markets more sustainable transportation choices (Recommendation F3).

Goods Movement

The protection and enhancement of goods movement in the City are key to economic sustainability and health. TransLink provides a co-ordinating role in supporting goods movement through the selective implementation of appropriate road improvements, road priority measures and the implementation of Intelligent Transportation Systems (ITS). It is recommended that TransLink, working with the municipalities, continue to explore strategies to improve the flow of goods and services and that TransLink work with the Province and municipalities on the potential shared use by trucks of the regional HOV lanes (Recommendations G1 and G2).

Proposed Funding Sources

Fares

Parking Charges

Property Tax

Funding Gap

The question remains how TransLink will handle the funding gap following 2007. TransLink indicates there is strong potential for Federal assistance. The Federal government raises about $300 million annually from Regional fuel taxes. A 5 cents/litre federal gas tax transfer commencing in 2008 would generate an additional $130 million; however, the relative allocation of this between the municipal and TransLink/regional transportation needs would have to be negotiated. It is recommended Vancouver and TransLink continue to press the Federal Government for funding support to address urban transportation problems and, further, that a portion of the funding be allocated directly to address municipal transportation needs (Recommendation H1).

Without Federal assistance, the plan after 2007 is affordable only by increasing or applying the revenue sources available to TransLink. There are many existing and potential revenue sources that the GVTA has the authority, or could request the authority, to access, as listed in Appendix 4. The resolution of this would be addressed through discussions with senior government and the development of the long term 2030 Transportation plan and LRSP updates in 2004-2005.

Land Use

In 2004, TransLink will be developing a new Long Term Transportation Plan, which will complement the GVRD's Sustainable Region Initiative. This will result in an important link between transportation and the region's growth management strategy and air qualitymanagement plan. While past land use plans have had success in directing residential growth to the Growth Concentration Area and town centres, the same cannot be said for employment. Office employment is becoming more dispersed through the development of business parks. These dispersed employment patterns are very difficult to serve in any effective way with transit.

The trend toward dispersed employment must be reversed if this region is to meet its land use and transportation objectives. It is recommended that TransLink work with the GVRD as part of the Long Range Transportation Plan and updated Livable Region Strategic Plan to encourage municipalities to better integrate their land use plans with the transportation services being developed and delivered. Furthermore, mechanisms should be explored to ensure greater municipal accountability for locating uses in areas not well served by alternatives to the single occupant vehicles (SOV's). (Recommendation l1)

CONCLUSIONS

The 10 Year Transportation Outlook and Three-Year Financial Strategy presents a mix of transit, roadway, goods movement, bicycle and other investments that will lead to a better transportation system with broader travel choices for regional residents and should be supported with the recommended requests for improvement. However, the 10 Year Outlook is only a beginning. The 2004/2005 process to develop a new long range strategic transportation plan and Livable Region Strategic land use Plan will have to address some serious concerns around the lack of progress towards achieving Growth Concentration Area population and employment targets, and towards Transport 2021 planned mode splits and implementation dates. As well, the plans will have to deal with the need for significant additional revenue resources and controversial TDM measures to fund the continued increase in regional transit services after 2007. Past events have shown this to be a complex and difficult task. For these and other initiatives, staff will work to ensure critical elements are addressed, consistent with City policies.

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Link to Appendices

 

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