Vancouver City Council |
REPORT TO COUNCIL
Date:
December 31, 2004
Author:
Jack Becker
Phone No.:
604.875.6205
RTS No.:
4777
CC File No.:
3062-1
Meeting Date:
January 18, 2005
TO:
Standing Committee on Transportation and Traffic
FROM:
Bicycle Advisory Committee
SUBJECT:
City of Vancouver Cycling Program
(2006-2008 Capital Plan, Cycling Portion)RECOMMENDATION
The Bicycle Advisory Committee recommends strongly to Council:
A. That Council set an aggressive target for cycling’s share of the City’s transportation mode split of 10% by 2010 and works towards achieving cycling mode levels of more aggressive European cities.
B. That the cycling routes identified in the 1999 Bicycle Plan and in the 2001 Downtown Transportation Plan be completed by year-end 2008, at the latest, as a first step towards attaining a 10% cycling mode share and that funding be provided in the 2006-2008 Capital Plan to complete these routes ($17 million) and for upcoming needs ($3 million).
C.(i.) That, building upon the 1988 and 1999 Bicycle Plans, a next stage comprehensive master cycling plan be completed by year-end 2006, including both physical cycling network and people-centered programs, to support attaining the target cycling mode share, thereby identifying capital, staffing, other resources, and related funding needs required to support such a comprehensive plan, and further;
C.(ii) That, as an essential component of the plan, ongoing market research be undertaken to determine and monitor:
a. opportunity and magnitude for growth of cycling as a form of transportation focusing on opportunities for conversion of motorists to cycling and on former cyclists who have given up on cycling as a form of commuting,
b. personal decision factors that would persuade motorists to switch to cycling as a form of transportation, and
c. supportive programs that would effect such mode switch to cycling and attain the targeted cycling mode split; andC.(iii) That, in preparation of the plan, staff be directed to determine new practices and enhancements to current cycling facilities design practices (designs, tools, options, guidelines, standards, etc.) which would sufficiently appeal to the non-cycling and infrequent cycling populous to switch permanently to cycling and to attain the target 10% cycling mode split.
D.(i) That sufficient cycling staffing, resources, and funding be provided to support the on-time implementation of the 2006-2008 Capital Plan and recommendations A, B, and C;
D.(ii) That sufficient cycling staffing and funding be provided for unexpected cycling infrastructure opportunities resulting from redevelopment of lands so that implementation timing of programmed projects are not negatively affected by such opportunities; and
D.(iii) That the cycling staff's focus would be to coordinate and:
a. Carry out the master plan described in Recommendation C through planning, designing, and implementing the cycling facility infrastructure, and
b. Develop and deliver programs for marketing, promotion, communication, safety, and education, among others in co-ordination with TransLink.E. That the annual capital budget include funding for spot improvements requested by the cycling public and supported by the Bicycle Advisory Committee and staff, and that the initial funding level be $100,000 annually.
F. That the route priorities, as set out in Attachment A – Recommendations Route Priorities – 2006-2008 Cycling Capital Plan, serve as guidance for future development of the bicycle network.
CITY MANAGER'S COMMENTS
The City has made significant progress on developing cycling as a priority transportation mode. The City's current cycling program has been effective in increasing ridership, increasing the cycling transportation modal split, and in taking advantage of cost-sharing programs.
The Bicycle Advisory Committee has recommended a much more aggressive program of bicycle network development. Staff have provided input for 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. Therefore the City Manager recommends the BAC report should be referred to the Capital Plan process along with the staff recommendations.
PURPOSE
The purpose of this report is to advise Council on the Bicycle Advisory Committee’s recommendations for funding and route priorities for the cycling portion of the 2006-2008 Capital Plan, completion of the 1999 Bicycle Plan’s defined route implementations, and on strategic direction for the City’s cycling program.
BACKGROUND
City staff has prepared a cycling infrastructure funding plan for the next round of capital funding – 2006-2008 Capital Plan based on the 1999 Bicycle Plan and the 2001 Downtown Transportation Plan and also recognizing the City’s capital availability guidelines.
In context of CitiPlan, the liveable region plan, the City’s commitment to the Kyoto Protocol, and the Cool Vancouver initiative, the Bicycle Advisory Committee has now an opportunity to reflect on the progress of cycling within the City, its fit to City’s overall direction, and its fit to people who would like to use cycling as a mode of transportation.
From ensuing discussions emanated recommendations for supporting a more aggressive growth in cycling within the City. The recommendations proposes a target for cycling within the City supported with funding, with sufficient staff resource for on-time capital implementation, and with plans for achieving the cycling mode split target.
While the recommendations may seem costly, when compared to the investment costs of providing alternate modes of transportation they are quite reasonable. When operating and social costs are considered, then the recommendations are at a very low cost level for providing transportation
· Cost of rapid transit system - $100,000,000 per km – 100,000 boarding per day
· Cost of purchasing a bus - $500,000 to $800,000 – 40 to 80 boarding capacity
· Cost of additional traffic lane - $300,000 to $500,000 per km for design and construct. – 800 vehicles per hour capacity. (C – 1)
· Cost of a 1.5 km bike lane - $5,000 to $10,000 for restriping, $35,000 to $150,000 with road widening – 2,000 bicycles per hour capacity. (C – 1)The City of Vancouver forecasts a growth in population from 545,000 to 668,000 by 2021 (SP – 5). Transportation capability will need to be put in place to accommodate 123,000 residents or the exponentially increasing cost of congestion will be incurred by business and also indirectly by the residents. The capability for expansion of roads is very limited. Continued propensity towards car driving will increase the cost of congestion exponentially. Options for alternate forms of transportation will need to be provided and also then utilized by Vancouverites. Cycling, as an environmentally sustainable form of transportation, is a desirable way of providing such capacity, partially in concert with intermodal commuting involving transit.
While aggressive, the Bicycle Advisory Committee’s recommendations and the attainment of the target cycling mode split, would position Vancouver with well recognized European cities such as Berlin, Zurich, and Strasbourg in the use of cycling as a form of transportation.
The cost of two transit rides per person per year has been the annual investment level in the cycling infrastructure of this city since 1990. By the end of 2005, the city will have spent or committed $26.5 million or $45.10 per person, mainly in bike routes and the Burrard Bridge. Staff is proposing an additional investment of $7.6 million during the period of 2006 to 2008. Funding sources will include the City, TransLink, and the Province. As an alternate approach, the Bicycle Advisory Committee’s recommendations would increase the total investment level since the start of the Seaside Route by about $20 million to a total of $46.2 million ($78.05 per capita or $4.11 per person per year). Not very much at all.
For realizing the proposed cycling mode split target, the prime market segment that such investments should be target to include:
· people who drive but could be influenced to cycle instead,
· people that have previously cycled but have given it up totally or primarily to drive instead,
· People that could be persuaded to leave their private vehicle at home and cycle to a transit stop and continue their journey by transit.After that, the next large opportunity for increasing cycling may be people who would want to cycle for recreational purpose, commuters that live in poorly served areas for cycling, and students going to school.
DISCUSSION
Recommendations - Justification
Re Recommendation A
Targets
Victoria is the North American leader in cycling mode split at 7.1% (MCS – 7). With a concerted effort Vancouver should be able to attain this level of cycling. Non-infrastructure initiatives could bring the cycling growth past Victoria’s level.
For sustainable cities, the European experiences should be looked at. A number of cities have grown their cycling mode split into the 10% to 16% range, such as Berlin, Strasbourg, Munich, and Hanover. More aggressive cities have reached the 20% to 28% range, including Freiburg, Copenhagen, and Amsterdam. Some exceptional cities have reached the 43% range such as Delft and Munster.
Then there are the Asian cities where cycling still predominates as the transportation option of choice.
For the City of Vancouver, attaining a 10% level seems like a reasonable first step towards achieving the successes of the European leaders in cycling for transportation, considering that the City wants to develop as a world class, environmentally sustainable city
Enablers
The cycling infrastructure investment made in the past few years and then expanded as envisaged by staff through to 2008 should see this City’s mode split grow to 5% or 6%. Other initiatives in progress at this time should cause the cycling mode split to grow to the 2011 target level, such as the Area Transit Plan and proposed cycling related initiatives, the RAV and NES transit lines facilitating more intermodal commuting, bike path on the RAV Bridge over the Fraser River, and revised Bikes on SkyTrain policies. New initiatives that will be proposed in the near future will facilitate this growth even further. Some of new initiatives that could come forward may include new SkyTrain cars designed for bicycles, upgrading of SkyTrain stations for cycling friendliness and access, marketing cycling as a choice form for commuting and general transportation, upgrading of existing arterial level bike routes. Also, just by completing the 1999 Bicycle Plan and the 2001 Downtown Transportation Plan along with some other infrastructure opportunities the existing cycling mode split should directionally double, within 10 years after investment implementation.
What Victoria has that Vancouver does not have is the Galloping Goose, i.e. a long off-road facility that attracts people to commute by bike. In Vancouver there is a potential to build on and expand the semi-off-road facilities such as the Central Valley Greenway, the Kent off-road Bikeway, and the Seaside Path (Point Grey Rd concept) into an extensive regional off-road cycling network that would develop touring cycling and bring people from the border, the ferries, the airports, the bus and rail stations, Lions Bay and Hope into the City of Vancouver
Internationally, the price of crude oil is rising and is forecasted to continue to rise. In concert with crude oil prices, the cost of fuel for the private vehicle will rise accordingly. In the near future, both commuters and businesses will be looking for less costly modes of transportation. An extensive cycling infrastructure needs to be in place to accommodate this upcoming opportunity for reducing the use of motorized vehicles.
Re Recommendation B
Timing
This bicycle plan was approved in 1999. According to Staff, at the current staffing level it would take another 10 years to complete the designated routes in this Plan (GR – 1). The Cool Vancouver Task Force Draft Community Climate Change Action Plan 2004 Report calls for expediting the completion of the City’s greenway and bikeway network to increase the number of “short trips” taken by cycling (CV – 1). The report also states that shifting automobile trips to cycling can have a significant impact on GHG emissions.
Capital
Staff has prepared recommendations for the 2006-2008 Capital Plan for cycling calling for City of Vancouver funding at $4.3 million which would attract $3.3 million of matching funding from TransLink and from the provincial government. Staff has indicated that their cycling capital plan maximizes the contributory funding that can be expected from other government programs, at this time.
The Bicycle Advisory Committee recommendations are for $20 million. At a maximum, the City of Vancouver would need to fund an additional $12.4 million over 3 years, if no other form of contributory funding becomes available through this period.
Discussions with the Minister of Transportation by both BCCC and VACC members have indicated that there is an expectation on the provincial government’s part that the federal government would come forth and contribute money to the provincial CIPP program. Matching of existing provincial funds was indicated as a potential. At existing CIPP funding level, this should result in $600,000 available to the City over the three-year period.
It is understood that a current priority action for the City of Vancouver is to obtain increased flexibility to spent TransLink Minor Capital cost-sharing funding on bicycle and pedestrian improvements. The Cool Vancouver Task Force Draft Community Climate Change Action Plan 2004 Report identified that the City currently has about $5 million in unallocated Minor Capital funding that could have been spent on cycling infrastructure if the TransLink rules permitted it. (CV – 1)
Recently a newspaper article indicated that the cities through the Federation of Canadian Municipalities have determined an allocation for the fuel tax that the federal government intends to pass down to the cities. The FCM formula provides significant moneys for sustainable infrastructure investment and for larger cites. The final formula still needs to be negotiated with the federal government.
Development Cost Levy with 22% being allocated to transportation will be fully operational in 2005 and could also be another source of funding for cycling investment.
Re Recommendation C
The 1988 and the 1999 Bicycle Plans facilitated cycling growth within the City. Cycling mode split rose from 1.3% in 1994 to 2.7% in 1999 for a 24-hour period (MSC – 1e). Meanwhile, cycling to work achieved a 3.3% cycling mode split according to the 1996 Census. While this reflects a significant switch by people to cycling and is impressive when compared to the growth rate for the GVRD at 0.2% in 5 year, the growth rate within the City is still rather low with only a 1.4% increase in 5 years.
As attested by the current slow growth rate, attaining a higher cycling mode share, such as 10%, will not be achieved through just providing cycling infrastructure facilities designed on current practices. The majority of growth through existing practices has been captured. There may still be 1% or 2% cycling mode share growth that can be achieved. To undertake a dramatic change in cycling mode split, as proposed, will require a comprehensive approach including infrastructure and non-infrastructure programs that will appeal to the needs of car-driving non-cyclists and those that have given up cycling for transportation. The next bicycle plan is now needed to provide programs that will draw drivers to cycling and former cyclists back to it. Achieving such a target cycling mode split would require a comprehensive cycling plan providing both a cycling-friendly physical infrastructure and also programs which will draw people from their cars to cycle instead. This cycling plan would provide input into the 2009-2011 Cycling Capital Plan, defining capital and other resource requirements.
In return for realizing a 10% cycling mode split, the City will experience reduced greenhouse gas emissions, improved health of its residence through daily exercise, drop in the auto mode split, lower congestion costs for movement of goods, and increased use of public transit through cycling / transit trips. (Refer to Attachment B for more details)
Recommendation D.(i) and (ii)
Without sufficient resources, including staffing, for implementing Recommendations D.(i) and D.(ii) the successful, on-time completion of the 2006-2008 Capital Plan will be questionable. Opportunities will come up through this period from land redevelopment that might temporarily divert staff from implementing the Capital Plan in order to realize the spot opportunity for cycling facilities that the redevelopment presents. The Bike Lanes on 33rd Ave. is an example of one of such opportunities realized.
Recommendation D.(iii)
Organizations have shown over time that when aggressive goals are to be achieved, then success is dependant on a coordinated effort with an explicit mandate of achieving the targets.
Recently the City of Vancouver has employed this strategy with respect to the City’s responsibility for the Olympic 2010 games and with implementation of Cool Vancouver Task Force Action Plan with a focus on the realization of the goals.
Current and proposed physical cycling infrastructure expansion will reach a plateau in cycling mode split. For the City to move beyond that level and into one that a green sustainable city should be at, programs targeted at those that are potential modal converters to cycling will need to be delivered.
Recommendation E
Cyclists become dissatisfied when perceived road conditions are not to a level that will keep people interested in cycling as a transportation choice and when their requests for spot improvements are not followed up within a reasonable time period. Setting aside some funds to respond within a reasonable time frame will provide positive feedback to cyclists that their concerns are important to the City. Involving the Bicycle Advisory Committee in the process is another demonstration that cyclists input does have a priority in the process and not lost within perceived staff priorities.
This approach has been used successfully in Vancouver and in other municipalities.
Recommendation F
The Bicycle Advisory Committee recommends to Council that the priority list in Attachment A serves as guidance for future development of the bicycle network. It is recognized, as some opportunities emerge, that some lower priorities may proceed before higher priorities.
Does Investment in Cycling Infrastructure Increase Cycling Ridership? (Attachment B – Does Investment in .Cycling Infrastructure…)
There is evidence that cycling infrastructure investments result in cycling trip growth including experiences in the City of Vancouver. There is sufficient confidence based on European cities cycling mode share growth that some cities have undertaken expensive programs to upgrade and expand their capabilities. Such confidence has resulted in Australia’s national cycling strategies to aim for a 20% annual growth in cycling trips.
Investment in Vancouver’s cycling infrastructure has resulted in cycling traffic increases of 175% for collector and neighbourhood bike routes and 375% for arterial bike routes. For four Swedish cities, upgrading the cycling infrastructure has resulted in cycling traffic increases on the 15% to 30% range, drop in car usage of 10% to 20%, and enlargement of the catchment areas for transit stations. London’s research of 11 European cities has determined that there is a clear relationship between investment and increased cycling levels. In the study periods, these cities have experienced cycling traffic growth in the 1.2% to 7.0%. Toronto’s study show an average 23% cycling growth (up to 41%) within 2 years of implementing the bike lanes.
Investment in the Physical Cycling Infrastructure
· City of Vancouver’s cycling to work mode split is at 3.3% (1996 Census data).
· Staff’s direction for the 2006-2008 Capital Program could result in a three-year investment for cycling facilities of $7.6 million
· of which $4.3 million the City of Vancouver will fund ($7.88 per capita investment or $2.63 per capita per year), and
· the remaining will be from matching funding from TransLink and the Province.
· Additional $13 million required to complete cycling routes identified in the 1999 Bicycle Plan ($23 per capita investment). Then, additional routes would be required to achieve the 1999 Bicycle Plan target of 1 km spacing between cycling facilities in the Plan.
· Achieving cycling mode split comparable to the European leaders (in the 20% cycling mode split range) could require investment in the $100 to $220 million range ($186 to $408 per capita).Cycling Investment Programs of Other Cities
· Master cycling plans for Houston, Portland, Toronto, and London call for investments from $73 to $260 million ($29 to $278 per capita).
· Based on London’s directional capital to cycling growth factor, Staff’s proposed 2006-2008 Capital Program should increase the cycling mode split to the 3.9% to 4.7% range). (generate 6,200 to 13,600 additional trips)Mayor of London, England Vision for a Sustainable City
· The Mayor’s vision is to make London a city where people of all ages, abilities and cultures have the incentive, confidence and facilities to cycle whenever it suits them. Cycling is integral to the Mayor’s vision to develop London as an exemplary sustainable world city.
· Mayor of London quote: “My long-term target, a 200% increase in cycling in London, reflects the important benefits that cycling can bring to the Capital, and by 2010 I expect to see an 80% increase in cycling”.
· To achieve a target increase of 80%, £147 million will be required.Appropriate Cycling Mode Split for Vancouver
· What is a reasonable cycling mode split target?
· What is a reasonable increase in the number of daily cycling trip?
· What is a reasonable amount of capital to invest in a comprehensive cycling infrastructure where “people of all ages, abilities and cultures have the incentive, confidence and facilities to cycle whenever it suits them”?· Achieving an aggressive cycling mode split target of 10% would require an increase of 66,000 trips from the current 3.3% level
· It is estimated that there currently are on an average day about 45,000 cycling trips that involve cycling within the City of Vancouver of which about 32,600 trips are generated by residents of the City of Vancouver.
· An aggressive cycling mode split would be supportive of the Cool Vancouver initiative, Kyoto Protocol commitment, the City’s initiative towards becoming a world class sustainable city, accommodating growth within a fixed street grid, and supporting a more active life style.
· A mode shift resulting in 10% cycling would reduce greenhouse gas emissions by 68% of Cool Vancouver’s overall target.
· With a 3.3% cycling mode share, the City of Vancouver is well positioned as a leader within Canada, however, is far back of continental Europe leaders. A 10% cycling mode share would position Vancouver at the entry level of European Cities leading in cycling for transportation.
· A significant investment in a high quality cycling infrastructure would be required in the order of $600,000 to $1,300,000 per 1,000 additional daily cyclists.
· The world is changing with rising oil prices. European level gasoline prices may be the norm for Vancouver in the near distant future. People may need to rethink their way of commuting, of having a second car, or a car at all. People are going to need viable alternative commuting options.
· To achieve a radical growth in cycling mode share will need a concerted effort with a comprehensive master cycling plan covering the physical network and social / psychological / human behaviours aspects affecting the decision to cycle.Excerpts from the City of Vancouver’s 2001 Downtown Transportation Plan – Executive Summary
· “The vision for Vancouver is to be the most liveable city in the world. In 1997, the Vancouver Transportation Plan recognized that road capacity is finite and that even if more roads were to be built they would soon be congested with more cars. The solution is to decrease the demand for auto trips by providing additional transportation choices, particularly transit.”
The City of Vancouver's vision is reflected in the 1988 Vancouver Comprehensive Bicycle Plan
· “to integrate cyclists into the existing transportation network and to promote and encourage the use of bicycles as a safe and convenient mode of transportation”.
Economic and Social Benefits from a 10% Cycling Mode Split
· A 10% cycling mode split should reduce GHG emission production by 62,000 tonnes per year within the City of Vancouver.
· A 10% cycling mode split could lead to reduction of the auto mode split from 45.9% to 38.6% within the City of Vancouver.
· A 10% cycling mode split could free up lanes and would allow lane reassignment for Active Transportation use, for transit use, for street beautification, and for traffic calming opportunities.
· A 10% cycling mode split could directionally effect reduction of movement of goods transportation costs in the order of $6 million plus per year.
· A 10% cycling mode split could increase cycling – transit intermodal commuting. Assuming 10% of this increase in cycling would also intermodal commute, transit revenue could increase by $3 million per year.
· A 10% cycling mode split should result in $100 million to $200 million per year now spent on automobile ownership and operations becoming available for local shopping, for other discretionary purchases, or for other purposes.
§ A 10% cycling mode split would position the City of Vancouver among active European cycling cities such as Berlin, Zurich, and Strasbourg.
· A 10% cycling mode split should result in reduced health care costs in the direction of $3.6 million at a modest 10% reduction of health care cost per capita, resulting from a healthier lifestyles.
· A 10% cycling mode split should increase the number of participants in an active lifestyle by about 36,000 residents of the City of Vancouver or by about 7% of its population.CONCLUSION
The City wishes to position itself as a leading city in the world for liveability. The formation of the 2006-2008 Capital Plan provides an opportunity to revisit the role, place, and priority of cycling within this City as a environmentally sustainable mode of transportation, as an option to support Active Livestyle, and as a mechanism to achieve the City’s strategic directions. The Bicycle Advisory Committee, through its recommendations, would advocate to Council that the timing is appropriate for a refocused drive to drastically increase the cycling portion of the transportation mode split.
“Signed: Brian Larsen”
Chair, Bicycle Advisory CommitteeAttachment A
Attachment B
References* * * * *