Biketoria

FINAL REPORT City of Victoria All Ages and Abilities Bicycle Network Plan

April 22, 2016

#BIKETORIA

City of Victoria All Ages & Abilities Bicycle Network Plan | Final Report

PREPARED FOR: City of Victoria No. 1 Centennial Square Victoria, BC V8W 1P6

PREPARED BY: Urban Systems 402 – 645 Fort Street Victoria, BC V8W 1G2 In association with

t: 250-220-7060 e: bpatterson@urbansystems.ca Contact: Brian Patterson, MCIP, RPP

SUBMITTED: April 2016 Urban Systems Reference: 1328.0026.01

COVER PHOTO | VICTORIA LEVESQUE RIDING IN THE CITY OF VICTORIA’S POP-UP PROTECTED BICYCLE LANE, MAY 2015 | CREDIT: RAY STRAATSMA

CONTENTS 1.0 Introduction. . . . . . . . . . . . . . . . . . . . .

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2.0 Context. . . . . . . . . . . . . . . . . . . . . . . .

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3.0 Public Communications and Engagement .

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4.0 Network Principles . . . . . . . . . . . . . . . .

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5.0 Network Analysis. . . . . . . . . . . . . . . . .

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6.0 Recommended Network. . . . . . . . . . . . .

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7.0 2018 AAA Priority Network. . . . . .

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8.0 Capital Implementation Plan . . . .

. . . . .

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9.0 Conclusion . . . . . . . . . . . . . . . .

. . . . .

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Appendix A | Public Consultation Plan and Report Appendix B | Minimum Grid Corridor Analysis Appendix C | Design Criteria Appendix D | Detailed Corridor Descriptions Appendix E | Accommodation for Transit Appendix F | Interim Design Options

MAPS: Existing Bicycle Network . . . . . . . . . . . . . . . . . . . 7 Current Level of Traffic Stress (LTS) . . . . . . . . . . . . 36 Cycling Collision Heat Map. . . . . . . . . . . . . . . . . . 38 Activity Density Heat Map. . . . . . . . . . . . . . . . . . . 40 Cycling Network Gap Analysis. . . . . . . . . . . . . . . . 42 Cycling Network Gap Analysis - All Ages & Abilities . 43 Commute Bicycle Mode Share . . . . . . . . . . . . . . . . 46 Cycling Potential Analysis . . . . . . . . . . . . . . . . . . . 48 Equity Score: Low Income Population . . . . . . . . . . . 50 Slope Analysis. . . . . . . . . . . . . . . . . . . . . . . . . . . 52 2014 Recommended Bicycle Network . . . . . . . . . . . 56 Primary Network. . . . . . . . . . . . . . . . . . . . . . . . . 67 Primary and Secondary Network. . . . . . . . . . . . . . . 68 2018 AAA Network. . . . . . . . . . . . . . . . . . . . . . . . 70 2018 AAA Network Analysis. . . . . . . . . . . . . . . . . . 71

1.0 INTRODUCTION

Victoria City Council has made a bold commitment to become a national leader in cycling infrastructure by building a city-wide network of “All Ages and Abilities� (AAA) bicycle routes to connect neighbourhoods across the city by 2018. #Biketoria is the project that is bringing this bold commitment to life. This report summarizes the #Biketoria project and identifies a recommended bicycle network along with concept plans for 8 priority cycling corridors.

This report first provides an overview of the context of cycling in Victoria along with the purpose and components of this study, including the Public Communications and Engagement Strategy. It then summarizes several guiding principles that were developed to guide and prioritize the development of the bicycle network. Informed by these guiding principles, an in-depth analysis of the multi-modal transportation network was completed to identify challenges and opportunities in building a network of AAA cycling facilities.

An initial proposed 2018 AAA cycling network was presented in an Interim Report and at early public engagement opportunities. Based on additional analysis of infrastructure constraints and opportunities, as well as additional public and stakeholder feedback, a revised 2018 AAA cycling network has been identified. This network features both protected bicycle lanes on major roads and neighbourhood bikeways on local streets to enable all Victoria residents to travel to their destinations across the city safely and comfortably.

Each corridor in the proposed network was reviewed at a high level to develop initial concepts, and then in more depth to complete detailed conceptual designs.

In order to meet the ambitious goals identified by City Council, a Capital Implementation Plan was also developed. This includes order-ofmagnitude cost estimates and proposed prioritization and phasing of the corridors.

This concluding chapter provides final recommendations on implementation considerations, including additional public and stakeholder consultation, as the City embarks on the implementation of this important project.

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1.1 THE BACKGROUND The City of Victoria is a livable, prosperous and vibrant community of approximately 80,000 residents located on the southern tip of Vancouver Island. With a mild climate year-round, relatively gentle topography, and a compact urban area with unique neighbourhoods, Victoria is an ideal community for cycling. The entire city is less than 20 square kilometers in area, making cycling a convenient and practical transportation choice for all trips within the city. In fact, cycling accounts for 11% of commute trips to work (2011 National Household Survey) - the highest bicycle commute mode share of any major city in Canada - and 4% of all trips within the city (2011 CRD Origin-Destination Survey). As a result, the City of Victoria has been recognized across Canada as a city for cycling. However, Victoria’s cycling mode share is relatively low compared to many worldleading cycling cities of similar size, which presents a significant opportunity for the city.

Victoria’s established bicycle network includes a variety of onroad facilities, including painted bicycle lanes and signed onstreet bicycle routes. Off-street multi-use trails are also valued, particularly the Galloping Goose Regional Trail, which provides an important regional connection to other municipalities within the Capital Regional District (CRD). However, much of the city’s existing cycling infrastructure is not safe or comfortable for people of all ages and abilities. As a result, there is a tremendous opportunity for network enhancements that will meet latent demand and grow the cycling mode share for a wide cross-section of trip types and travellers.

The City of Victoria has always been supportive of cycling; however, the City’s current Council has made an unprecedented commitment to build a multi-modal and active transportation network that is safe and comfortable for people of all ages and abilities. To reinforce their commitment, Council has approved the largest financial investment in cycling infrastructure in the City’s history. In addition, Council recently adopted the City’s Strategic Plan 2015 - 2018 which

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#BIKETORIA Final Report

states that “by 2018, Victoria will be a national leader for cycling infrastructure and complete streets planning, with a completed allages and abilities cycling network connecting all neighbourhoods and village centres.”

By building a complete All Ages and Abilities (AAA) cycling network that connects major destinations throughout the City, Victoria can be one of the world’s most active, healthy, and happy small cities.

“

”

A national leader in cycling infrastructure by building an All-Ages and Abilities (AAA) cycling network by 2018.

City of Victoria Strategic Plan 2015-2018

1.2 THE #BIKETORIA STORY The bold commitments of City Council will significantly change the face of Victoria for cycling and for all modes of transportation for future generations, and will help to make the city even more livable and vibrant for residents and visitors alike. This project is the next step in planning and designing a minimum grid network of AAA bicycle facilities that connects each neighbourhood in Victoria.

This study builds on the first phase of the Bicycle Network Update and public engagement that was undertaken in 2014 to refine and enhance the previously proposed network.

The specific objectives of this project were to: Analyze public input received during the 2014 Bicycle Network Update consultations; Review and enhance the 2014 recommended bicycle network;

This project was initiated in August 2015 and was developed over three phases, as shown below. With completion of this report, it is recommended that the City undertake further public and stakeholder engagement as it develops detailed designs for each priority corridor, before implementing an AAA Cycling Network by 2018.

THE PURPOSE OF THIS REPORT

This Final Report presents the findings of the three phases of the study. This includes the identification of the recommended 2018 AAA Cycling Network, summary of key public consultation results, conceptual design for each corridor, cost estimates, and a capital implementation plan.

Develop detailed conceptual design for 6-8 priority corridors; Provide order-of-magnitude costing for the priority corridors and completion of the entire proposed network; Consult with a Technical Advisory Committee (both staff and members of the public) to support the process of reviewing the network and conceptual designs; Conduct a focused public engagement process to collect input on gaps or deficiencies in the existing cycling engagement; and

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LAUNCHING

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NETWORK PLANNING

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CONCEPTUAL DESIGN AND PUBLIC ENGAGEMENT

Technical Advisory Committee #1 #Biketoria Summit

Project Start-Up

Neighbourhood & Business Targeted Engagement

Technical Advisory Committee #2 Develop Detailed Concepts

Final Report

Refine Detailed Concepts

Prepare and present an interim and final report to Council, including an implementation plan to develop priority corridors.

Research and Analysis Interim Report

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Technical Advisory Committee #3

Initial Concept Development #Biketoria Salons

Technical Advisory Committee #4

2.0 CONTEXT

2.1 CYCLING IN VICTORIA The City of Victoria is an ideal cycling city – it is relatively flat, has a mild climate year-round, has an active and healthy population, and is very compact with many unique neighbourhoods and destinations.

The entire city is less than 20 square kilometers in area, making cycling a convenient and practical transportation choice for all trips within the city. However, in the last decades the share of people who choose to cycle has not seen significant growth. Although there has been some increase in commuter cycling, the share of people using bicycles for other types of trips remains low, with only 3.8% of all trips made by bicycle in 2011.

The City has made modest investments in cycling infrastructure over the last 20 years, building over 46 kilometres of painted bicycle lanes and more recently, 2 kilometres of buffered bicycle lanes. The Existing Bicycle Network map (M1) highlights the location of these facilities. Although these have been important investments to build a network throughout the city, these facilities have not resulted in a significant increase in people riding bicycles because, in part, many of these facilities do not feel safe or comfortable for people of all ages and abilities. As well, the facilities that have been completed are fragmented and do not form a complete, connected network throughout the city.

“

Victoria will be a national leader for cycling infrastructure and complete streets planning, with a completed All-Ages and Abilities cycling network connecting all neighbourhoods and village centres.

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City of Victoria Strategic Plan 2015-2018

#BIKETORIA Final Report

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2.2 POLICY CONTEXT There have been a number of plans, policies and projects developed by the City of Victoria that have shaped the way that Victoria’s bicycle network has been developed in the past and influences what it will look like in the future. Below is a brief summary of some of the most influential policies specific to bicycle network planning and design in Victoria and the surrounding region.

BICYCLE MASTER PLAN, 1995

The City completed its first Bicycle Master Plan in 1995. This comprehensive plan discussed the need for infrastructure, policies, education, and enforcement that support cycling. Though some of the objectives, policies and approaches still hold true today, the recommended facilities do not reflect current advancements in cycling infrastructure. In particular, the 1995 Bicycle Master Plan did not identify bicycle facilities in the downtown core, and did not necessarily focus on facilities that would be most attractive to people of all ages and abilities. However, the 1995 Bicycle Master Plan has served as the city’s blueprint for the past 20 years, and the city has made significant progress expanding the network over ABOVE: BICYCLE NETWORK, BICYCLE MASTER PLAN, CITY OF VICTORIA, 1995 this time.

CRD PEDESTRIAN & CYCLING MASTER PLAN, 2010

The CRD’s Pedestrian and Cycling Master Plan, completed in 2010, set a bold goal that 25% of all trips in urban areas throughout the region will be made by bicycle by 2038.

The Plan also identified a comprehensive bikeway network that links the entire region, as well as Design Guidelines to provide a common framework for developing cycling facilities and signage.

OFFICIAL COMMUNITY PLAN, 2012

Capital Regional District

Regional Pedestrian & Cycling Masterplan

Prepared for the CRD by Alta Planning + Design March 2011

RIGHT: PEDESTRIAN AND CYCLING MASTER PLAN, CAPITAL REGIONAL DISTRICT, 2010

The City's Official Community Plan (OCP) set targets to increase the share of people cycling by 2041.

These targets include: By 2041, 70% of trips to work will be by bike, walking or transit.

By 2041, 60% of all trips will be by bike, walking or transit.

The OCP states that the bicycle network should: Link common destinations, including:

▪▪ Urban core, town centres, urban villages; ▪▪ Common destinations including parks, schools, institutions, major employment centres; and, ▪▪ Major tourism destinations.

Align and ensure consistency between the Bicycle Master Plan and the Greenways Plan, Pedestrian Master Plan and regional plans; and Make specific improvements to the cycling network connections in Burnside, Fernwood, Hillside-Quadra, James Bay, Jubiliee, Oaklands, Rockland and Vic West.

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BICYCLE NETWORK UPDATE (2014)

In 2013, the City began revising its 1995 Bicycle Master Plan by updating its bicycle network with the creation of a Cycling Taskforce made up of the Mayor and two Councillors, two staff members and two members of the public. This taskforce began by guiding the update of the proposed bicycle network and developing a project priority list.

PANDORA PROTECTED BICYCLE LANE (2016)

The first project to stem from the first phase of the Bicycle Network Update is the implementation of a protected bicycle lane on Pandora Avenue. This project is scheduled to be constructed in 2016. The two-way protected bicycle lane will be the first of its kind in the City of Victoria and will be an important addition and step towards the development of a network of AAA bicycle facilities.

An extensive public consultation program was developed and delivered in 2014. The City engaged stakeholders and the general public through focus groups, pop-up booths, surveys and other activities. Reaching a diverse range of stakeholders, this process revealed that safety is the primary concern among Victoria residents when it comes to cycling. Residents engaged in this process called on the City to implement bold solutions to make cycling a safe, efficient, and irresistible mode of transportation.

A future vision was developed based on this engagement which states that through the implementation of the Bicycle Network Update in Victoria: Cycling is safe; Cycling is for all ages and abilities; and, Cycling is convenient.

As a result of the first phase of the Bicycle Network Update, the City developed an updated bicycle network that included an AAA network, along with a list of six priority projects that were planned to be implemented between 2015 and 2019.

ABOVE: PANDORA PROTECTED BICYCLE LANE CONCEPT, CITY OF VICTORIA, 2015

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OTHER PLANS AND PROJECTS

In addition to the plans, policies and initiatives noted above, there are a number of other key plans and projects that influence and inform this project, as shown below:

EXISTING POLICIES ▪▪ ▪▪ ▪▪ ▪▪ ▪▪ ▪▪ ▪▪ ▪▪ ▪▪

Bicycle Master Plan, City of Victoria, 1995 Bicycle Network Update, City of Victoria, 2014 Douglas Street Priority Transit & Cycling Lanes, City of Victoria and BC Transit, 2014 Official Community Plan, City of Victoria, 2012 Pedestrian Master Plan, City of Victoria, 2008 Greenways Plan, City of Victoria, 2003 Downtown Core Area Plan, City of Victoria, 2013 Pedestrian and Cycling Master Plan, Capital Regional District, 2011 Transit Future, BC Transit, 2011

FUTURE PROJECTS ▪▪ ▪▪ ▪▪

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2016 Financial Plan 20 Year Capital Plan Neighbourhood Plans

#BIKETORIA Final Report

CURRENT PROJECTS ▪▪ ▪▪ ▪▪ ▪▪ ▪▪ ▪▪ ▪▪ ▪▪ ▪▪

Strategic Plan 2015 - 2018 Making Victoria Economic Action Plan Burnside Gorge Local Area Plan and Transportation Study Pandora Protected Bicycle Lane David Foster Harbour Pathway Johnson Street Bridge Replacement Douglas Street Priority Transit and Cycling Lanes North Park Village Streetscape Improvements Rockland Avenue Greenway

2.3 ALL AGES AND ABILITIES FACILITIES Over the past several years, cities across the world have recognized the benefits of providing a network of bicycle facilities that are safe and comfortable for all road users and attract individuals that are interested in cycling, but may have safety concerns or may not feel comfortable riding on many streets, particularly those with higher traffic speeds and volumes. As a result, cities have been moving towards AAA bicycle networks, by focusing on three types of facilities: protected bicycle lanes, neighbourhood bikeways, and off-street pathways.

The aim of the City’s planned AAA bicycle network is to provide an interconnecting system of bicycle facilities that is comfortable and attractive for a broad array of users, including women, children, and seniors. An AAA bicycle network is designed to be suitable for persons ranging in age from children to older adults and seniors, and is comfortable for most people regardless of their ability as they provide increased levels of comfort and safety through the use of high quality bicycle facilities separated from traffic, or by using streets with low vehicle volumes and speeds.

The proposed AAA bicycle network is made up of proposed protected bicycle lanes, and neighbourhood bikeways, as well as existing off-street pathways.

PROTECTED BICYCLE LANES Protected bicycle lanes are exclusive bicycle facilities that are physically separated from motor vehicle travel lanes and the sidewalk, but are located on-street within the road right-of-way. Protected bicycle lanes combine the comfort and experience of an off-street pathway with the benefits of route directness and access to destinations provided by onstreet infrastructure. In many cases, protected bicycle lanes are separated by landscaping or curbs from the sidewalk or by on-street parking, facilitating separation between cyclists and pedestrians as well. There are many types of protected bicycle lanes, offering varying types of treatments to offer protection.

For this project, it is recommended that one-way protected bicycle lanes be between 1.8 and 2.2 metres in width, and that two-way protected bicycle lanes are between 3 and 4 metres in width depending on the expected volume of people on bicycles and width available. It is recommended that the buffer of the protected bicycle lane is at least 0.6m except in constrained circumstances. See Appendix C for a full listing of the applicable design criteria.

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NEIGHBOURHOOD BIKEWAYS Neighbourhood bikeways are shared bicycle routes that are typically located on local streets with lower traffic volumes and speeds and that have been optimized to varying degrees to prioritize bicycle traffic. In cases where traffic volumes and speeds are relatively low, bicycle users and motorists are able to comfortably share the road without the need for significant physical improvements to the roadway if the street is of sufficient width to allow safe passing between cyclists and motor vehicles.

In cases where the existing streets have relatively low traffic volumes and speeds, the only improvements required may be signage and pavement markings identifying the road as a bicycle route, and crossings where the neighbourhood bikeways intersect major roads. However, they can be further enhanced with traffic calming measures such as traffic circles and speed humps.

To be comfortable for people of all ages and abilities, for this project, it is recommended that neighbourhood bikeways have vehicle speeds of less than 30 km/hour, and traffic volumes of less than 1,000 motor vehicles per day. See Appendix C for a full listing of the applicable design criteria.

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OFF-STREET PATHWAYS Off-street pathways are physically separated from motor vehicles and provide sufficient width to be used by cyclists, pedestrians, and other non-motorized users. Offstreet pathways can be either multi-use pathways, where pedestrians, cyclists and other non-motorized users share the pathway, or separated bicycle-only pathways for exclusive use by bicycle users and separated from distinct pedestrian pathways.

For this project there are no new off-street pathways proposed, although the network makes important connections to existing off-street pathways. It is recommended that the City consider the design criteria developed by the Capital Regional District for off-street pathways, if future facilities are identified.

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#BIKETORIA Final Report

3.0 PUBLIC

COMMUNICATIONS AND ENGAGEMENT

#BIKETORIA PUBLIC COMMUNICATION AND ENGAGEMENT STRATEGY

Building on previous consultation processes undertaken by the City, the #Biketoria Public Communication and Engagement Strategy was developed to provide an inclusive and accessible approach to building awareness and excitement about Victoria’s All Ages and Abilities network. This updated engagement process was designed to ensure residents’ needs and ideas were incorporated into the locations and design of each corridor in the AAA network.

The #Biketoria Public Communication and Engagement Strategy emphasized the need to include non-cyclists and diverse voices who may not otherwise participate in community planning processes.

This was achieved by expanding the conversation beyond active mobility and cycling, and by holding events in existing community hubs such as cafes, street corners, parks, and a public library.

How the information was used: The feedback we collected through surveys, emails, mapping exercises, social media interactions, and conversations were compiled and analyzed to identify key themes, ideas, and concerns. The results were used to improve corridor locations and enhance concept designs to mitigate any potential challenges and maximize communiy benefits.

COMMUNITY ENGAGEMENT OBJECTIVES:

KEY QUESTIONS:

The #Biketoria team identified nine key questions that we wanted the public to provide feedback on throughout the engagement process. These questions were crafted to ensure the conversations and feedback were constructive towards the process of creating an AAA network that serves all Victoria residents.

Who do you think would feel comfortable riding on the proposed bicycle facilities?

Does the network connect you to the places you want to go?

Does the network come close enough to your home?

Where are you concerned about your safety within the proposed network?

What specific types of amenities would you like to see included in the priority network? Where would you like to see them?

Once the priority network is complete, which destinations will you visit most often by bicycle?

Will this network encourage you to cycle more? If yes, why?

What excites you most about this project? What impacts of the project concern you the most?

Which of the priority corridors do you care about the most? Which do you care about the least?

Generate broad awareness around the proposed bicycle network and preliminary concept designs; Collect feedback regarding the proposed bicycle network and preliminary concept designs from key stakeholders and a diverse representation of the general public; Provide information in an accessible format to ensure all residents feel they have had an opportunity to provide informed feedback; Contribute to a shift of mindset so that residents view cycling as an important part of the Victoria future lifestyle, in addition to being an efficient, safe, and fun mode of transportation.

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See the full Community Engagement Report in Appendix A

COMMUNICATIONS AND ENGAGEMENT IMPLEMENTATION

Beginning in October 2015, the #Biketoria consultant team and City of Victoria staff began a community engagement process to guide the routes and designs of Victoria’s 2018 All Ages and Abilities network.

Over a six-week period, city residents and diverse stakeholders were invited to contribute ideas and concerns about the project through a variety of communications and engagement methods.

The feedback was used by the #Biketoria consultant team to identify opportunities to enhance the design of each corridor, and to develop solutions for anticipated issues and challenges in the network.

WHAT WE LEARNED: KEY FACTS & FIGURES Over 2,500 people participated in the #Biketoria engagement process by attending events, writing emails, interacting on social media, or completing surveys 78% of survey respondents agree the proposed AAA network connects them to the places they want to go 70% of survey respondents agree that they will cycle more once the AAA network is built 71% of survey respondents agree the AAA network comes close enough to their home 19% of survey respondents live outside of Victoria 65% of engagement event participants do not normally get around by bicycle 73% of engagement event participants feel their input was valued and will help shape #Biketoria Safety matters - infrastructure improvements that will make cycling safer was the most common reason that survey respondents gave for being excited about the AAA network Congestion is a concern - potential traffic impacts and loss of parking were the most common reasons that survey respondents gave for being concerned about the AAA network Quality counts - engagement event participants stressed the importance of including high quality design and landscaping improvements. Survey participants wanted to see broader streetscape enhancements included as part of this process.

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3.1 ACTIVITIES The #Biketoria Public Communication and Engagement Strategy included six different activities that were used throughout the study. These activities are summarized below to highlight their purpose and content. Overall, the intent of this approach was to move the engagement from a broad overview of cycling in Victoria, to a network level, and then finally to the designs of each corridors.

Feedback was collected and used to anticipate challenges, identify solutions, and refine the designs of each corridor.

The first TAC meeting was held on September 21, 2015 to review the proposed network and provide feedback on the challenges, opportunities and possibilities of each corridor. The second meeting took place on November 18, 2015 for the committee members provide more specific input on the preferred facility type on each of the corridors. The third meeting was held on December 15 to present preliminary detailed conceptual corridor designs. A final meeting was held on February 16, 2016.

*

List of all groups represented:

NETWORK PLANNING TECHNICAL ADVISORY COMMITTEE

Establishing the Technical Advisory Committee (TAC) was the first step in the #Biketoria engagement process. The TAC met four times from October to February to evaluate the ongoing development of the network, and to provide guidance from diverse perspectives.

Technical Advisory Committee members were responsible for: Reviewing information provided by the City and its consultants and provide comments, concerns, ideas and opportunities to be considered in developing the cycling network; Promoting and raising awareness about the cycling network among the group or agency they represent and with the broader public; Acting as a representative of a larger stakeholder group where applicable; and Providing technical feedback relative to their organization’s mandate where applicable.

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> Business Community > Cycling Community > Placemaking > Urban Design / Architecture > Healthy Communities > All Ages and Abilities

> Accessibility > Students > Safety > Equitable representation by gender > Sustainable Transportation > City of Victoria

“Connecting the bicycle networks both within and between municipalities is very important to ensure that people can travel further distances by bike. Bicycle lanes that suddenly end with no option for cyclists to continue safely are dangerous.”

Survey respondent

#BIKETORIA SUMMIT AND ENGAGEMENT EVENTS

On November 1 and 2, over 400 residents, stakeholders, and community leaders came to learn about Victoria’s 2018 All Ages and Abilities bicycle network and share feedback with the #Biketoria team. This latest phase of cycling engagement began on November 1 at the Cook Street Pop-Up Bike Lane event hosted by the Greater Victoria Placemaking Network and the Greater Victoria Cycling Coalition, where residents test rode a separated bicycle lane and provided input on the proposed AAA network. Immediately following that, nearly 200 residents came to hear Mayor Lisa Helps, Gil Penalosa of 8 80 Cities, and Mia Birk of Alta Planning + Design speak about the future of biking in Victoria.

On November 2, the #Biketoria team displayed information about the AAA network and collected resident feedback during two separate #Biketoria Engagement Labs at the Central Library and at the corner of Wharf Street and Government Street

#BIKETORIA SURVEY

The #Biketoria survey was developed to supplement the engagement events, and to provide an accessible method for people to share their ideas, support, or concerns about the AAA network.

An online version of the survey was hosted on the City of Victoria’s website, and hard copy paper surveys were available at all engagement events. The online survey responses were collected from October 27 - November 15, 2015. During that time 1,613 surveys were completed. The paper surveys were collected during the #Biketoria events on November 1-2, 2015. The paper surveys were completed at the Cook Street Pop-Up event and #Biketoria Summit on November 1, and during the two #Biketoria Engagement Labs at the Central Library and on Wharf Street on November 2. During those events, 124 paper surveys were collected.

In total, more than 1,700 survey responses were submitted. The results of the surveys begin on page 22.

ATTENDANCE

Attendance at each #Biketoria engagement event exceeded identified targets.

50 people attended the Pop-Up Bike Lane event on Cook St. and Dallas Rd.; 220 people attended the #Biketoria Summit at the Victoria Conference Centre;

TAC MEETING #1

This meeting was held on September 21, 2015. At this meeting members of the committee were introduced before reviewing the project outline, sharing the existing conditions analysis, and receiving feedback on the initial considerations for a network and potential corridors.

110 people attended the Engagement Lab at the Central Library 30 people attended the Engagement Lab at the corner of Wharf St. and Government St. Approximately 410 people attended the four events.

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CONCEPT DEVELOPMENT #BIKETORIA NEIGHBOURHOOD SALONS

Between December 1 and 3, 2015 the #Biketoria team hosted three Neighbourhood Salons in three different areas of the city. The Salons were held in popular and accessible community hubs, and organized as informal open house events. The engagement activities at each event were designed to focus the conversation on specific neighbourhoods based on the location of the Salon. The schedule of events was as follows: December 1, 2015 @ Cook Street Village Focus neighbourhoods: James Bay, Fairfield, Rockland, Gonzales, North/South Jubilee December 2, 2015 @ Caffe Fantastico Focus neighbourhoods: North Park, Harris Green, Fernwood, Oaklands, Hillside/Quadra December 3, 2015 @ Habit Coffee Focus neighbourhoods: Victoria West, downtown Victoria, Burnside The events were promoted in the Times Colonist and on the City of Victoria’s social media channels. Posters and hand bills were distributed at businesses, libraries, and community centres across the city to raise awareness of the events. Direct invitations were sent to members of local neighbourhood and business associations, who then spread the information throughout their networks.

The purpose of the Neighbourhood Salons was to present information and collect feedback on the recommended network and priority corridors, as well as the preferred concepts for each corridor. The Salons were designed to solicit feedback and spark conversations about the micro, neighbourhood-specific benefits and impacts of each corridor. Visual display boards and maps were used to illustrate corridor design options, while surveys and interactive engagement methods were used to collect resident feedback on those options.

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Approximately 250 people attended the three events.

TAC MEETING #2

This meeting was held on November 18, 2015. At this meeting a summary of the first round of public engagement was provided along with the recommended All Ages and Abilities network and priority corridors. The committee provided feedback and options for each of the priority corridors.

“Cyclists and drivers need to understand each other better. Drivers need to understand that cyclists are members of this community too and are as entitled as drivers to have transportation routes designed for their use. With that said, cars aren’t going away, so we can’t lose sight of their needs either.”

Survey respondent

CONCEPT REFINEMENT TAC MEETING #3

This meeting was held on December 15, 2015. At this meeting a summary of the second round of public engagement was provided.

The committee then provided feedback on the proposed facility design options for each of the priority corridors.

TARGETED BUSINESS & NEIGHBOURHOOD ENGAGEMENT

In January and March 2016, the City of Victoria and #Biketoria team held meeting with interested business and neighbourhood groups for additional targeted engagement. The targeted meetings were: Cook Street Village businesses – January 26, 2016

TAC MEETING #4

This meeting was held on February 16, 2016. At this meeting the draft final report was presented. The committee provided feedback on the proposed capital implementation plan. This meeting was also used to recognize the important contribution the committee members made to the #Biketoria project.

ONGOING COMMUNICATIONS SOCIAL MEDIA

Hillside/Quadra – March 7, 2016

Social media was critical to promoting the #Biketoria campaigns and engagement events. The City of Victoria’s existing social media channels (Facebook, Twitter, Instagram) were used throughout the process to share updates about the project, raise awareness of the engagement events and track online feedback.

North Park - March 8, 2016

All posts and comments about the AAA network were tracked using

Community Associations – February 3, 2016 Oaklands/Fermwood - February 27

James Bay - March 9, 2016 Downtown Residents/Businesses - March 10, 2016 Vic West - March 15, 2016 South Jubilee - March 16, 2016 For each meeting, the City of Victoria individually invited interested stakeholders. In some cases, City staff went door-to-door to invite business owners and operators to attend a meeting.

The purpose of these meetings were to provide more detailed information on specific portions of the proposed network, and discuss impacts and mitigation strategies. By meeting directly with interested parties who will be impacted by the implementation of the AAA network, the #Biketoria team was able to gain a deeper understanding of stakeholder concerns regarding vehicle parking and vehicle movement, project process and financial impact on businesses.

21

the #Biketoria hashtag. The findings below reflect social media activity from October 17, 2015 to January 31, 2016.

310 comments/replies on the City of Victoria’s Facebook page 944 “Likes” for Facebook posts with the #Biketoria hashtag 460 Tweets using the #Biketoria hashtag 310,997 Twitter accounts reached 1,126 “Likes” for Instagram images with the #Biketoria hashtag

PRINT MEDIA

The #Biketoria team actively reached out to local media sources at important project milestones to ensure that information about the network and engagement opportunities were widely available. In total, 17 #Biketoria-related media items were published, including online and print articles, editorials, radio interviews, and television features on local and national outlets.

22

#BIKETORIA Final Report

3.2 ENGAGEMENT RESULTS ONLINE AND PRINT SURVEYS

The following results are from the #Biketoria online surveys and paper surveys. Online survey responses were collected from October 27 to November 15, 2015. During that time over 1,700 online and hard copy surveys were collected.

23

ONLINE AND PRINT SURVEYS (CONTINUED)

COMMENTS AND EMAILS

We received 846 open-ended comments through surveys and emails with feedback and ideas on the AAA network. Stakeholders were invited to send emails to biketoria@urbansystems.ca with feedback and ideas. In total, 85 emails were sent between October 27, 2015 to January 31, 2016.

The chart below illustrates the most common terms and phrases from the survey comments and the emails.

24

#BIKETORIA Final Report

CORRIDOR FEEDBACK

We asked residents for input and ideas on both the macro and micro scale. Each corridor in the AAA network must work together to create a connected and accessible bicycle grid. That’s why we wanted to collect as much feedback as possible on the designs, locations, opportunities, and potential drawbacks of each corridor.

Corridor-specific surveys were available at the #Biketoria Summit events. Attendees were invited to comment on as many of the eight corridors as they chose. The patterns that emerged from this process helped the #Biketoria team to troubleshoot challenging sections of the corridors and select appropriate design treatments.

The corridor-specific surveys were designed to gauge public support and opinions on tradeoffs for road space for specific segments of each route. The results of these surveys are listed below.

Haultain-Bay The majority of respondents (92%) supported a two-way protected bicycle lane on Bay Street; The majority of respondents (86%) supported a two-way protected bicycle lane on Haultain Street and Kings Road.

Fort Street

The majority of respondents (83%) supported a two-way protected bicycle lane on Fort Street from Wharf to Yates; The majority of respondents (90%) supported one-way protected bicycle laneson Fort Street from Yates to Pandora.

Cook Street Government-Gorge

The majority of respondents (95%) supported one-way protected bicycle lanes on Government Street from Pandora to Yates; The majority of respondents (95%) supported one-way protected bicycle lanes on Government Street from Yates to Bay; The majority of respondents (87%) supported the pedestrianization of Government Street between Wharf and Yates.

Harbour Edge

The majority of the respondents (56%) supported the Government/ Bay/Bridge/Gorge alignment over the Government/Gorge alignment.

Nearly half of respondents (48%) supported a neighbourhood bikeway on Harbour Edge from Pendray to Erie; The majority of respondents (89%) supported a neighbourhood bikeway on Harbour Edge from Wharf to Belleville: The majority of respondents (74%) supported a neighbourhood bikeway on Harbour Road

The majority of respondents (57%) supported bicycle facilities on Cook Street, while 43% preferred Vancouver Street A majority of respondents (75%) supported one-way protected bicycle lanes and parking on one side within the Village Centres.

A minority (25%) supported minimal width protected bicycle lanes with parking retained on both sides of the street.

Begbie / Shelbourne

The majority of respondents (67%) supported bicycle facilities on Shelbourne, while 33% preferred an off-Shelbourne corridor;

Fairfield Road

Nearly half of respondents (49%) supported bicycle facilities on Fairfield Road, while 47% prefer a corridor on Richardson.

Pandora - Oak Bay Avenue

The majority of respondents (74%) supported a two-way protected bicycle lane on Pandora Road. from Cook to Johnson; The majority of respondents (96%) supported one-way protected bicycle lanes on Pandora Road. from Johnson to Foul Bay.

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WHO WE HEARD FROM

The #Biketoria Communication and Engagement Strategy emphasized the need to include non-cyclists and diverse voices who may not otherwise participate in community planning processes. This was achieved by expanding the conversation beyond active mobility and cycling, and by holding events in the community where people gather, travel, shop and socialize. We used diverse engagement tools that are fun, interactive, and accessible to ensure we reached these objectives.

2a. How old are you?

Responses: 1,886

1a. Do you identify as: Responses: 1,920 1% 4%

3a. What are the primary purposes of your current biking trips? Select all that apply.

Responses: 4,104

6% 12%

45%

14%

50%

12%

6%

33% 23%

18%

28%

Female (860 responses )

18-25 (218 responses )

26-3 5 (630 responses )

Other (11 response s)

Prefer not to say (64 response s)

36-4 5 (425 responses )

46-55 (258 responses )

56-6 5 (234 response s)

65+ (120 response s)

Visiting friends /fam ily (723 responses )

28%

14%

73% Agree

22% neither agree nor disagree

Ever yday (453 responses )

24%

1-2 times/week (258 responses ) Occasionally (266 response s)

8%

4% Disagree

Trips with childre n (253 responses )

4a. How often do you currently bike?

Responses: 1,903 7%

“I feel like my input was valued and will help shape #BIKETORIA�

Commuting (1,129 responses ) Runnin g errands (847 responses )

21%

Male (985 responses )

Exercise /recreatio n (1,152 responses )

14%

3-6 times/week (651 responses )

34%

1-3 times/mo.

(151 responses ) Never (124 response s)

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#BIKETORIA Final Report

3.3 NEXT STEPS Community engagement is an ongoing, two-way conversation with the community. The City should keep the conversation alive after this first engagement phase of the All Ages and Abilities network has concluded. Below is a list of actions that fall out of the scope of this current phase, but that would strengthen the All Ages and Abilities network plan going forward.

1.

Set targets and develop evaluation criteria: Evaluation criteria will allow the City to assess the All Ages and Abilities network with transparent methodology. City staff should work with the Technical Advisory Committee and other stakeholders to identify specific targets related to increasing safety and comfort, attracting noncyclists, filling existing network gaps, improving community health, and reducing vehicle road miles traveled.

5.

Inclusive engagement: Focus groups and semi-structured conversations can be an effective tool for reaching low-income, minority, youth, older adults, and other populations that may be impacted by the locations of specific corridors due to the proximity of healthcare facilities, schools, churches, shelters, or community centres. This will allow staff to collect detailed information about the needs of specific populations in an informal setting.

2.

Measure performance: Performance measures will help evaluate progress and provide a quantitative indicator of success in meeting the network goals. We recommend that the City begin counting cyclists along the proposed corridors before construction begins, and then again after the All Ages and Abilities network is built. It will also be important to count who is using the bike lanes, particularly youth, older adults, and women.

6.

Maintain an advisory committee: The #Biketoria Technical Advisory Committee provided valuable and meaningful feedback from diverse stakeholders throughout the All Ages and Abilities network planning phase. The Committee should continue to convene on a regular basis, or be replaced by a general Bicycle Advisory Committee to provide consistency and accountability to the wide variety of stakeholder interests they represent.

3.

In-depth engagement: It is important to solicit feedback from businesses and residents located directly on the proposed corridors, and provide transparent information on an ongoing basis. We recommend conducting in-person surveys with each business and residence along corridors where significant concerns have been expressed. Flyer-drops and mail inserts should also be used to build awareness during the construction and implementation phases.

7.

Make data accessible: Use data strategically to help residents understand existing conditions and the logic behind each corridor’s inclusion in the network. Provide detailed technical reports and community engagement summaries on the City website to ensure transparency and accountability. Make a wide range of materials easily accessible online as well as in print, and use visual communication tools whenever possible.

4.

Ongoing engagement: The City should continue to use the #Biketoria brand to maintain consistent messaging and awareness of the project.

Additional pop-up engagement labs could be hosted on each route to solicit corridor-specific feedback. Online surveys should also be used to track community support for the project over time. Information and feedback can continue to be distributed and collected on Twitter, Facebook, Instagram, and the City of Victoria’s website.

8.

Walking and bicycling tours: On-site walking and bicycling tours along the proposed network could be used to collect more detailed, site-specific feedback of each corridor. Drawing on the expertise of local community leaders can help generate excitement about the project, and be used as a valuable opportunity to illustrate how proper facilities would improve the public realm for residents, business owners, pedestrians, cyclists, and motorists.

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4.0 NETWORK

PRINCIPLES

4.1 VISION This project is centred around the City’s bold commitment to become, by 2018, a national leader for cycling infrastructure and complete streets planning, with a completed AAA cycling network connecting all neighbourhoods and village centres.

The realization of this commitment will significantly change the face of the City of Victoria for current and future generations – how people choose to move around, where they choose to live, as well as the overall culture and economy of the city. This is exciting and daunting, as few cities in the world have undertaken such a transformation in cycling infrastructure in such a short timeframe. That being said, the cities that have accelerated the construction of a network of high quality bicycle facilities have been rewarded with substantial mode share increases.

Seville, Bogota, and most recently Calgary’s newly opened downtown network of protected bicycle lanes, have seen significant increases in the number of people who choose to make travel by bicycle over other transportation options.

4.2 GUIDING PRINCIPLES Several guiding principles have been developed for this study in order to assess and recommend enhancements to the 2014 bicycle network and identify and design the priority corridors. These guiding principles are a crucial component of this project, but will also be considered in all future bicycle network planning and decisions by the City. These principles will be considered throughout the process from network planning to the design and implementation of the facilities. As well, the principles are an important measure of the project’s success.

The guiding principles are made up of two types of principles:

▪▪ Network Planning ▪▪ Implementation Prioritization

Based on the Bicycle Network Update public engagement, and current national and international best practices in bicycle network and facility design, three network planning guiding principles have been established as shown to the right and described in further detail below.

#COMFORTABLE

A network that is safe and comfortable for people of All Ages and Abilities

#COMPLETE

A connected minimum grid network that ensures all residents have access to AAA facilities within a short cycling distance.

#CONVENIENT

A convenient network that connects all major destinations in the City.

30 #BIKETORIA Final Report

#COMFORTABLE A network that is safe and comfortable for people of all ages and abilities. This includes a network that provides access to a number of important destinations within the city such as parks and schools.

This network is also made up of facilities that are comfortable. They will be either physically separated from motor vehicles on busy streets, or they will be shared spaces on quiet streets that have been designed to slow vehicle speeds and reduce motor volumes while enhancing the neighbourhoods they travel through.

The AAA network will be made up of a combination of protected bicycle lanes, neighbourhood bikeways and off-street pathways.

The public engagement process for the Bicycle Network Update found that a network that is accommodating to all ages and abilities through strategic route location and safe infrastructure is very important to Victoria residents.

#COMPLETE

#CONVENIENT A convenient network that connects all major destinations in the City. Major destinations include: Urban core, town centres and urban villages; Retail businesses; Community amenities including schools, parks, health centres and institutions; Major employment areas; and Major tourism destinations.

As well, each neighbourhood in the city should have convenient access to AAA cycling facilities.

The public engagement process for the Bicycle Network Update found that the public values good connections to key destinations, neighbourhoods and surrounding municipalities.

A minimum-grid, city-wide network that ensures all residents have access to an AAA facility within a short cycling distance. This minimum grid would be connected by supporting routes and traffic calmed neighbourhoods. This type of network would allow for every resident of Victoria to be able to access a safe and comfortable route within a short distance of their home and destinations.

One of the outcomes of the Bicycle Network Update public engagement was an emphasis on an integrated network.

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Two additional guiding principles were also developed. These guiding principles focus on prioritizing implementation of the 2018 AAA network. There are two prioritization principles that inform the identification of the 2018 priority network. These prioritization principles are:

#DEMAND Corridors that provide the greatest potential for increased ridership, current and budding economic development opportunities, and additional benefits for residents and visitors to the City will be prioritized as this provides the greatest return on investment for the City.

#DOABLE A key component of this project is to identify corridors that can be built by 2018. In order to achieve this ambitious schedule, priority corridors have been identified based on the feasibility of building the facilities. This includes consideration of the current curb-to-curb width of road, current and future transit, known future development, planned road reconstruction, and other issues.

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#BIKETORIA Final Report

5.0 NETWORK

ANALYSIS

A series of comprehensive analyses were conducted using Geographic Information Systems (GIS) to better understand the various factors that influence the cycling network. These analyses were conducted to inform the bicycle network planning process and the identification of priority corridors by helping to understand where the current bicycle network falls short and where potential future network improvements could be targeted. Five types of analysis were conducted to address the guiding principles noted in the previous section:

#COMPLETE

#COMFORTABLE

MODE SHARE

LEVEL OF TRAFFIC STRESS ANALYSIS Assesses whether bicycle facilities are attractive for people of ages and abilities by classifying streets within the City of Victoria based on levels of stress they cause people riding bicycles.

SAFETY ANALYSIS Identifies cycling collision hotspots based on available cycling collision data over the past five years.

#CONVENIENT DESTINATIONS AND ACTIVITY ANALYSIS Identifies proximity to key destinations throughout the City, including current commercial areas, community destinations, activity hubs, and neighbourhood centres where people work, shop, socialize, volunteer and spend time with their families.

GAP ANALYSIS Assesses the extent and coverage of the city’s existing bicycle network and whether residents are within a reasonable cycling distance to a bicycle facility.

#DEMAND Identifies current levels of commuter cycling throughout the City based on 2011 National Household Survey data.

CYCLING POTENTIAL Highlights areas of Victoria where investments in cycling have the greatest of potential based on land use, road network characteristics and where, if investments were made in these areas, they could result in increased levels of cycling.

EQUITY ANALYSIS Highlights the neighbourhoods in Victoria that would benefit from increased transportation options and a safer network based on demographic information.

#DOABLE

CONSTRAINTS ANALYSIS

Identifies key constraints such as topography, physical or natural barriers, property constraints, and network gaps or jogs based on the results of the 2014 Bicycle Network Update engagement and available data.

The methodology and key findings of each of these analyses are provided on the subsequent pages.

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#BIKETORIA Final Report

#COMFORTABLE LEVEL OF TRAFFIC STRESS (LTS)

Empirical evidence has shown that people using bicycles will tend to judge a route based on the safety and comfort of its weakest (or most stressful) link. This analysis assesses whether bicycle facilities are attractive for people of ages and abilities by classifying streets within the City of Victoria based on levels of stress they cause people riding bicycles. A level of comfort for a person riding a bicycle is determined based on factors including posted speed limit, street width, and the presence and character of bicycle lanes. The combination of this criteria separates the bicycle network into one of four scores:

LTS 1

Most children are comfortable

LTS 2

Most adults are comfortable

LTS 3

Confident cyclists are comfortable

LTS 4

Only the strongest and most experienced cyclists are capable (but not necessarily comfortable)

In general, a separated bicycle facility, such as an off-street pathway or separated bicycle lane, would qualify as a low-stress (LTS 1) bikeway. On corridors where bicycle users share the road with motor vehicle traffic operating at high speeds, it would receive a higherstress score (LTS 4). The results of the LTS analysis helps identify existing areas with a high level of service as well as focus areas for improvement.

A “low stress” network (meaning facilities comfortable for most adults) is likely to attract a larger portion of the population because it accommodates people that are uncomfortable with or do not wish to ride in mixed traffic. Low traffic, low-speed roadways, off-street pathways and protected bicycle lanes are all examples of low stress links in a bikeway network.

The LTS analysis provides an intuitive framework to describe the benefits of bicycle infrastructure, and demonstrates that some roadways need more intervention than others to provide a truly comfortable experience. For example, the only time a standard bicycle lane is considered AAA is a 2 metre wide facility on a roadway with posted speed limit of 40 kph or lower, and the best LTS score that can be achieved on a roadway with four or more travel lanes without installing a protected bicycle lane is LTS 3. In terms of user comfort, most people will not use a buffered bicycle lane when cycling on a roadway such as Pandora Avenue both downtown and east of Begbie Street; they require some sort of physical barrier to feel comfortable.

KEY FINDINGS

Most of Victoria’s current street network is relatively low stress, with an average LTS score of 2. The neighbourhoods with the highest and lowest levels of traffic stress are: HIGHEST: [1] Gonzales (Average: 1.69)

[2] Fernwood (Average: 2.24) [3] Rockland (Average: 2.25) LOWEST: [1] Harris Green (Average: 2.9) [2] Downtown (Average: 3.05) [3] North Park (Average: 3.38) When considered in conjunction with the collision data, it is important to note that a large number of LTS 2 routes are found in neighbourhoods with fewer collision events.

35

Saanich

M2: CURRENT LEVEL OF TRAFFIC STRESS (LTS)

d

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t

2 Average Adult 1 All Ages and Abilities

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Men zies St

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Hol

Memorial Cres

Rd

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km 0.5 36

#BIKETORIA Final Report2 1 1.5

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Oak Bay

Toronto St Sim c

View St

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Oak Bay Ave

d mon Rich

C " )

Oak Bay

Pandora Ave

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St

Leighton Rd

St C

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Government St

Sup

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Johnson St

Courtney

Belleville St

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Cook St

rf St

Langley St

Wha

St

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Balmoral Rd

Vancouve r St

Store St

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Fisgard St

ta m Ki

Inner Harbour

Caledonia Ave

Herald St

Rd

Eri e

A " )

Chatham St

Douglas St

d eR Tye

St

Broad St

Hereward Rd

Catherine St

C " )

Upper Harbour

Esquimalt Rd

Victoria Harbour

Haultain St Bay St

Wils on

Arena

Richmond Rd

C " )

Community Facilities

Municipal Boundaries

Skinner St

.25

C " ) A " )

St

t ge S Brid

St

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ide Ave Hills

dE

Rd

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3 Enthused and Confident

Dr ter cas

son S Finlay

ide Rd E

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Bu rn s

4 Strong and Fearless

North Dairy Rd

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Tolmie

Current Level of Traffic Stress (LTS)

McNeill Bay

#COMFORTABLE SAFETY ANALYSIS

The Level of Traffic Stress Analysis, described previously, identifies where people on bicycles may feel most of less comfortable and is often based on perceptions of safety. In addition, an objective analysis was conducted of reported cycling collisions based on data provided by the Insurance Corporation of British Columbia (ICBC) and the Victoria Police Department (VicPD) to identify bicycle collision hotspots. This analysis was based a review of all reported collision involving a bicycle user and motor vehicle over the past five years

KEY FINDINGS

Over the past five years the majority of reported bicycle collisions occurred in the downtown area (including Harris Green), with several hotspots of reported collision activity occurring on the periphery - primarily along existing bicycle routes. Most intersections that experienced a collision event have seen fewer than four reported bicycle collisions over this time period.

Other areas with a large concentration of reported bicycle collisions include North Jubilee, South Jubilee, and Burnside Gorge. Fewer collisions occurred in the neighbourhoods of Gonzales, Fairfield, and James Bay, as well as Hillside Quadra. Generally speaking, Victoria neighbourhoods with higher bicycle mode shares tend to have a lower number of reported bicycle collisions, despite the increased number of cyclists on the road in these areas.

The top five streets for reported bicycle collisions were:

1

Bay Street

2

Fort Street

3

Esquimalt Road

4

George Road East

5

Pandora Aveue

37

Saanich

M3: CYCLING COLLISION HEAT MAP

d

ill R da rH Ce

iet Rd Ha rr

t

Moderate High

Contributing Road Segment C " ) A " )

C " ) Bay St

Men zies St

Os we go St

Quadra St

Fernwood Rd

Oak Bay Ave

View St

Yates St t For

St

St

e Rockland Av

Southgate St

Rd

l Bay Fou

Richard son St

" ) C

C " ) i irf Fa

oe St

nt Rd sce Cre

d el

St

Ross St

Hol

Memorial Cres

Rd

Moss St

Nia ga ra

Rd

Da lla s

ly wood C es r

Ross Bay

km 0.5 38

#BIKETORIA Final Report2 1 1.5

Clover Point

Oak Bay

Toronto St Sim c

Oak Bay

Pandora Ave

Ave

C " )

Leighton Rd

d mon Rich

C " )

St ie

les St har

St

Municipal Boundaries

St C

eri or

Government St

Sup

Arena

Johnson St

Courtney

Belleville St

gb Be

Cook St

rf St

Langley St

Wha

St

Community Facilities

C " )

Balmoral Rd

Vancouve r St

Store St

C " ) C " )

Fisgard St

ta m Ki

Inner Harbour

Caledonia Ave

Herald St

Rd

Eri e

A " )

Chatham St

Douglas St

d eR Tye

St

Upper Harbour

Broad St

Hereward Rd

Catherine St

C " ) Wils on

Esquimalt Rd

Victoria Harbour

Haultain St Richmond Rd

C " ) Skinner St

.25

Very High

St

t ge S Brid

St

C

ard Blansh

Cra igfl ow er

Pine

" )

ide Ave Hills

dE

Rd

Dominio n Rd

Go rge R

Shelbourne St

Jut lan

dR d

C " )

Low

Dr ter cas

son S Finlay

ide Rd E

n Do

Bu rn s

Very Low

North Dairy Rd

Ave

Tolmie

Cycling Collision Heat Map

McNeill Bay

#CONVENIENT DESTINATIONS AND ACTIVITY ANALYSIS

People travelling by bicycle want to access the same destinations as all other road users, and want to be able to travel from A to B as quickly and conveniently as possible. This analysis identifies proximity to destinations throughout the City, including current commercial areas, community destinations, activity hubs, and neighbourhood centres where people work, shop, socialize, volunteer and spend time with their families.

Several analyses were conducted to understand access to destinations throughout the City. Key destinations include the City of Victoria’s downtown core, as well as Town Centres and Urban Villages identified in the City’s Official Community Plan. Destinations also include community facilities, hospitals, schools, arenas, public facilities, institutions, and parks and open space.

KEY FINDINGS Based on these destinations, a density mapping exercise was conducted to identify high concentrations of destinations throughout the City. This analysis identified a high density of destinations downtown, as well as around Mayfair Mall, Hillside Mall and Royal Jubilee Hospital, as well as around each of the Village Centres distributed throughout the City. This analysis helped to identify key destinations that the proposed bicycle network should connect to.

The existing bicycle network provides access to many destinations and activity centres in the City of Victoria, although connectivity between centres is not complete. For example, there is no existing network connection between downtown and Beacon Hill Park.

39

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dR d

C

Higher Activity C " ) A " )

ard Blansh St

Cra igfl ow er t ge S Brid

C " )

Men zies St

Os we go St

View St

Fernwood Rd

Yates St t For

St

St

e Rockland Av

Southgate St

Rd

l Bay Fou

Richard son St

" ) C

C " ) i irf Fa

oe St

nt Rd sce Cre

d el

St

Ross St

Hol

Memorial Cres

Rd

Moss St

Nia ga ra

Rd

Da lla s

ly wood C es r

Ross Bay

km 0.5

40 #BIKETORIA Final Report 1 1.5 2

Clover Point

Oak Bay

Toronto St Sim c

Oak Bay Ave

Ave

C " )

Oak Bay

Pandora Ave

d mon Rich

C " )

Leighton Rd

les St har

St

St ie

St C

Government St

eri or

gb Be

Johnson St

Courtney

Belleville St

Sup

C " )

Balmoral Rd

Cook St

rf St

St

Langley St

Wha

Eri e

Quadra St

Store St

C " ) C " )

Fisgard St

ta m Ki

Inner Harbour

Caledonia Ave

Herald St

Rd

Victoria Harbour

A " )

Chatham St

Esquimalt Rd

Douglas St

d eR Tye

St

Upper Harbour

Broad St

Hereward Rd

C " ) Wils on

Arena Municipal Boundaries

Haultain St Bay St

Skinner St

Community Facilities

Richmond Rd

C " )

Vancouve r St

St

" )

ide Ave Hills

dE

Shelbourne St

Jut lan

Go rge R

Pine

Lower Activity

n Do

son S Finlay

ide Rd E

C " )

Catherine St

.25

Bu rn s

Activity Density Heat Map

North Dairy Rd

Ave

Tolmie

Rd

Dominio n Rd

M4: ACTIVITY DENSITY HEAT MAP

McNeill Bay

#COMPLETE GAP ANALYSIS

Gaps in the cycling network can have a similar impact on a cyclist’s commute as road closures have on motor vehicle drivers travelling on the road network. When confronted with a gap in the network, a traveller is required to either detour to a safer route which often requires local knowledge, or to continue through substandard or potentially uncomfortable or even hazardous conditions. To the extent that traffic hazards are a major deterrent for potential cyclists, examining gaps in the bikeway network is a first step in considering a plan for future bikeway upgrades.

The gap analysis presented in this section was conducted specifically for existing bicycle facilities. The purpose of this analysis is to identify and classify the gaps in the existing bicycle network. The different types of gaps that were analyzed are described in the table below. The bicycle network gap analysis considers both the on-street and off-street network, and includes all of Victoria’s existing bicycle network.

GAP TYPE Location Specific Gaps Area Gaps

SUB-TYPE Network Gaps

Area Gaps

DESCRIPTION

RATIONALE

Facilities that terminate unexpectedly are Where a bicycle facility is discontinuous potentially hazardous and make navigation by (“dropped”) bicycle challenging and unpredictable.

Where no bicycle facility is present in a given area, based on an analysis of network coverage using buffers

Identified through buffer analysis of the existing network to identify areas in the city not included in the network.

A central focus of this study is providing AAA facilities to the residents and visitors in Victoria. Therefore, it is important to analyze the area gap that results from the current AAA facilities that exist in the city.

KEY FINDINGS

This analysis demonstrated the very limited access there currently is to high quality facilities, and therefore further emphasizes the need for these facilities.

41

% %

%

d

da rH Ce

Existing Bicycle Network

%

C

Buffered bike lane Conventional bike lane

ard Blansh

Signed bike route

St

Cra igfl ow er t ge S Brid

C " )

C " ) Bay St

Men zies St

Os we go St

Fernwood Rd

Yates St St

%

t For

St

%

e Rockland Av

Rd

l Bay Fou

Richard son St

" ) C

C " )

oe St

i irf Fa

nt Rd sce Cre

d el

St

Ross St

Hol

Memorial Cres

Rd

Moss St

Nia ga ra

Rd

Da lla s

ly wood C es r

Ross Bay

km 0.5 42

#BIKETORIA Final Report2 1 1.5

%

Oak Bay Ave

Clover Point

Oak Bay

Toronto St Sim c

Arena

Oak Bay

Pandora Ave

Southgate St

Community Facilities

Leighton Rd

Ave

C " )

View St

Link to Route Outside Victoria

Municipal Boundaries

St

d mon Rich

C " )

e gbi Be

les St har

St

C " )

Balmoral Rd

St C

Government St

eri or

C

A " )

Cook St

Langley St

rf St

Sup

) %"

Johnson St

Courtney

Belleville St

%

%

Wha

St

Quadra St

Store St

C " ) C " )

ta m Ki

Inner Harbour

Caledonia Ave

Herald St Fisgard St

Rd

Eri e

A " )

Chatham St

Vancouve r St

Upper Harbour

d eR Tye

St

Douglas St

Wils on

Broad St

Hereward Rd

Catherine St

C " )

Esquimalt Rd

Victoria Harbour

Bus and bike lane combined

Haultain St Richmond Rd

Rd

Dominio n Rd

" )

ide Ave Hills

dE

Shelbourne St

Jut lan

dR d

Multi-use trail

Skinner St

0.25

Existing Bike Network - 400m Buffer

%

%

% iet Rd

ill R

%

Ha rr

t

Dr ter cas

Go rge R

St Pine

Existing Bike Network - 200m Buffer

n Do

son S Finlay

ide Rd E

C " )

Cycling Network Gap Analysis

North Dairy Rd

Ave

Tolmie Bu rn s

Saanich

%

% %

%

M5: CYCLING NETWORK GAP ANALYSIS

% McNeill Bay

M6: CYCLING NETWORK GAP ANALYSIS ALL AGES AND ABILITIES

43

#DEMAND MODE SHARE

The current bicycle commute mode share was analyzed on a neighbourhood by neighbourhood basis by applying 2011 National Household Survey data provided by Statistics Canada. This data is collected every five years and provides an indication of how many people in each neighbourhood identify cycling as their typical mode of transportation to commute to work or school.

KEY FINDINGS

According to the data, the lowest levels of bicycle commuting in the City of Victoria occur in downtown and Harris Green. In these two neighbourhood, walking is a more popular alternative (representing 40 percent of commuter trips) due to destination proximity, which results in short travel distances. The neighbourhoods east of downtown (with the exception of North Jubilee and South Jubilee, which are the furthest neighbourhoods from downtown) demonstrated higher proportions of bicycle commuting (above 10 percent) than neighbourhoods situated west of downtown. Fairfield, in particular, had the highest proportion of bicycle commuting (15.3 percent) among all neighbourhoods. Fairfield is the site of Beacon Hill Park, the largest recreational open space in Victoria, and Cook Street Village, a key neighbourhood retail and commercial centre. The presence of both destinations, in addition to Fairfield’s proximity to downtown, may contribute to the neighbourhood’s high number of commute trips by bicycle. The relatively low cycling levels recorded in Victoria West and Burnside-Gorge can be explained by the presence of barriers. For Victoria West, the Johnson Street Bridge represents the sole linkage across the Inner Harbour to downtown. In Burnside Gorge, industrial land uses and busy arterial streets make bicycle travel less appealing than in neighbourhoods such as James Bay and North Park.

Despite these variations among neighbourhoods, it is important to note that bicycle mode share in all City of Victoria neighbourhoods exceeds British Columbian (2 percent) and Canadian (1 percent) averages.

45

Saanich

M7: COMMUTE BICYCLE MODE SHARE

d

C " ) A " )

Shelbourne St

Oaklands " C )

ide Ave Hills

St

t ge S Brid

Rd

C " )

C " )

ta m Ki

C " ) C " )

Downtown Wha

Langley St Governme nt St

Rd

rf St

Inner Harbour

Courtney

North Jubilee

St

t For

St

Rockland e Rockland Av

Sim c

" )

Ross St

Hol

km

#BIKETORIA Final Report2 1 1.5

Rd

Rd

St

Clover Point

nt Rd sce Cre

d el

Rd

Fairfield

i irf Fa

oe St

Nia ga ra

Gonzales

C " )

Memorial Cres

Men zies St

Toronto St

Richard son St

C

l Bay Fou

Oak Bay

Os we go St

Yates St

St

Southgate St

Oak Bay

Oak Bay Ave

ly wood C es r

Ross Bay

0.546

Leighton Rd

Ave

)

South Jubilee

St ie

St

James Bay " C Da lla s

Pandora Ave

Harris Green

gb Be

d mon Rich

C " )

eri or

Balmoral Rd

les St har

Sup

C " )

St C

Belleville St

View St

Fernwood

Moss St

Eri e

Johnson St

North Park

Cook St

Store St

Herald St

A " )

Caled onia Ave

Fernwood Rd

Chatham St

Quadra St

Upper Harbour

Douglas St

d eR Tye

St

Broad St

Hereward Rd

Catherine St

Wils on

Esquimalt Rd

Victoria Harbour

Arena

Bay St

C " )

Victoria West

Community Facilities

Haultain St

Vancouve r St

Dominio n Rd

13.7 - 15.3%

Municipal Boundaries

Skinner St

0.25

10.0 - 13.6%

ard Blansh

Cra igfl ow er

St

ill R da rH Ce

iet Rd Ha rr

Jut lan

dR d

Hillside / Quadra

Burnside

Pine

Dr ter cas

C " )

5.9 - 9.9%

n Do

son St Finlay

Bu rn sid eR dE

Gorge Rd E

3.8 - 5.8%

North Dairy Rd

Ave

Tolmie

Commute Bicycle Mode Share

McNeill Bay

#DEMAND CYCLING POTENTIAL

The City of Victoria is a diverse community comprising a variety of neighbourhoods with distinct land uses and community destinations. The city is made up of high employment and activity areas such as the downtown core, higher density neighbourhoods, town and village centres, and residential neighbourhoods. To help understand the unique conditions for cycling throughout Victoria and which areas of the city are most bikable, an analysis was conducted of the cycling potential throughout the city. This analysis examined a variety of factors that can help make cycling more attractive, such as road network density, road network connectivity, land use mix, permeability, and topography. This analysis helped to identify unique cycling issues and opportunities throughout Victoria, and the areas with the highest potential to increase bicycle use.

KEY FINDINGS

The analysis of cycling potential in each neighbourhood indicated that: Downtown has the highest cycling potential based on land use mix, topography and population. Currently the area has the lowest bicycle commute rate of people journeying from home to work, but serves a number of people traveling in the other direction, or accessing other destinations downtown.

The Harris Green neighbourhood also has very high cycling potential for a number of the same reasons. This is consistent with other neighbourhoods in Victoria’s central area (e.g., Northpark, Fernwood, and South Jubilee), which score highly in part due to denser residential populations and dense street grid.

Based on the variables measured, Hillside Quadra and Victoria West have the lowest potential of all Victoria’s neighborhoods. It is worthwhile to note that all Victoria’s neighbourhoods have a commute mode share that is much higher than the British Columbian average and represent places with good cycling potential.

47

Saanich

M8: CYCLING POTENTIAL ANALYSIS

d

Shelbourne St

Highest

St

t ge S Brid

Rd

" ) C

C " ) Bay St

Store St

Esquimalt Rd

Herald St

ta m Ki

C " ) C " )

Caled onia Ave

Downtown Wha

Langley St Governme nt St

Rd

rf St

Inner Harbour

Courtney

St

St

Rockland e Rockland Av

Men zies St

Sim c

" )

Rd

Ross St

Hol

ly wood C r es

Ross Bay

km 0.548

#BIKETORIA Final Report2 1 1.5

Clover Point

nt Rd sce Cre

d el

St

i irf Fa

Rd

Fairfield

l Bay Fou

Gonzales

C " )

oe St

Nia ga ra

Rd

Richard son St

C

Memorial Cres

Os we go St

t For

Oak Bay

Toronto St

Oak Bay

Yates St

Ave

)

Leighton Rd

Oak Bay Ave

St

Southgate St

Arena

South Jubilee

St ie

St

James Bay " C Da lla s

Pandora Ave

Harris Green

gb Be

d mon Rich

C " )

eri or

C " )

Balmoral Rd

les St har

Sup

View St

Fernwood

Community Facilities

Municipal Boundaries

St C

Belleville St

Johnson St

North Park

Moss St

Eri e

A " )

Fernwood Rd

Chatham St

Cook St

Upper Harbour

Quadra St

d eR Tye

St

Douglas St

Wils on

Broad St

Hereward Rd

Catherine St

North Jubilee

C " )

Victoria West

Victoria Harbour

C " ) A " )

Haultain St

Vancouve r St

Dominio n Rd

Oaklands " C )

ide Ave Hills

ard Blansh

Cra igfl ow er

Skinner St

0.25

ill R da rH Ce

iet Rd Ha rr

Jut lan

dR d

Hillside / Quadra

Burnside

St Pine

Dr ter cas

C " )

n Do

son St Finlay

Bu rn sid eR dE

Gorge Rd E

Lowest

North Dairy Rd

Ave

Tolmie

Cycling Potential Analysis

McNeill Bay

#DEMAND EQUITY ANALYSIS

One of the aims of this project is to develop a well-connected network for cycling that serves all areas of the city and includes areas that have a high density of historically underserved populations and relatively low levels of facilities currently. An equity analysis was conducted to examine the distribution of bicycle facilities in relation to these underserved populations. The equity analysis helped to identify those areas of Victoria where limited access to bicycle facilities is compounded by socio-economic challenges. Promoting equitable transportation options and harnessing demand for cycling are two important reasons to potentially prioritize improvements to bicycle facilities in these neighbourhoods.

The low-income equity score provided for each neighbourhood compares the percentage of the neighbourhood population below the Low Income Cut Off (LICO) threshold to the percentage of population in Victoria that is below the threshold. This analysis applied data on the 2011 National Household Survey.

KEY FINDINGS

Neighbourhoods within and adjacent to the downtown core (including downtown, Harris Green, North Park, Fernwood, and Hillside Quadra) all have low-income populations higher than those found in the city as a whole (20.7 percent). Neighbourhoods located around the periphery of the city have a lower percentage of low-income individuals. Only two neighbourhoods have a low-income population of less than 10 percent, while those greater than the city average ranged from above 21 percent to nearly 40 percent.

49

Saanich

M9: EQUITY SCORE - LOW INCOME POPULATION

Shelbourne St

Jut lan

C " )

d

Oaklands " C )

ide Ave Hills

C " )

Community Facilities Arena Municipal Boundaries

Herald St

ta m Ki

C " ) C " )

Downtown Wha

Langley St Governme nt St

Rd

rf St

Inner Harbour

Courtney

St

Rockland e Rockland Av

Sim c

" )

oe St

St

Hol

0.5 50

#BIKETORIA Final Report2 1 1.5

Rd

Ross St

ly wood C es r

Ross Bay

km

Clover Point

nt Rd sce Cre

Rd

Rd

Fairfield

d el

Nia ga ra

Gonzales

C " )

Memorial Cres

Men zies St

Toronto St

Richard son St

C

l Bay Fou

Oak Bay

Os we go St

St

i irf Fa

Da lla s

t For

St

Southgate St

Oak Bay

Yates St

Ave

)

Leighton Rd

Oak Bay Ave

St

James Bay " C

South Jubilee

St ie

d mon Rich

C " )

eri or

Pandora Ave

Harris Green

gb Be

les St har

Sup

View St

C " )

Balmoral Rd

St C

Belleville St

Johnson St

Fernwood

Moss St

Eri e

Caled onia Ave

North Park

Cook St

Store St

Esquimalt Rd

A " )

Fernwood Rd

Chatham St

Quadra St

Upper Harbour

Vancouve r St

d eR Tye

St

Douglas St

Wils on

Broad St

Hereward Rd

Catherine St

North Jubilee

C " )

Victoria West

Victoria Harbour

Haultain St Bay St

Skinner St

0.25

C " ) A " )

St

t ge S Brid

St

Above City Average

ard Blansh

Cra igfl ow er Rd

Dominio n Rd

Burnside

Pine

ill R da rH Ce

Hillside / Quadra

dR d

iet Rd Ha rr

C " )

Gorge Rd E

t

Dr ter cas

son S Finlay

ide Rd E

n Do

Bu rn s

Below City Average

North Dairy Rd

Ave

Tolmie

Equity Score: Low Income Population

McNeill Bay

#DOABLE CONSTRAINTS ANALYSIS

This analysis identified key constraints such as topography, physical or natural barriers, property constraints, and network gaps or jogs based on the results of the 2014 Bicycle Network update engagement and available data. Based on the Council direction to build a priority network by 2018, curb-to-curb road widths was one of the key considerations of building on-road AAA bicycle facilities. Topography can present a considerable challenge for people who are choosing to ride a bicycle.

KEY FINDINGS

Due to Victoria’s gentle topography, there are only a limited number of areas where topography is a strong concern. Still, there may be significantly different topography between two parallel streets, thus favouring one route over another as a key bicycle route. The analysis of the city’s topography demonstrates that there are areas in Quadra-Hillside and Fairfield that have significant slopes (over 8%) that could be difficult for many people on bikes to navigate.

51

Saanich

M10: SLOPE ANALYSIS

d

ill R da rH Ce

iet Rd Ha rr

t

5 - 8% > 8%

C " )

Men zies St

Os we go St

Quadra St

Fernwood Rd

Yates St t For

St

St

e Rockland Av

Southgate St

Rd

l Bay Fou

Richard son St

" ) C

C " ) i irf Fa

oe St

nt Rd sce Cre

d el

St

Ross St

Hol

Memorial Cres

Rd

Moss St

Nia ga ra

Rd

Da lla s

ly wood C es r

Ross Bay

km 0.5 52

#BIKETORIA Final Report 1 1.5 2

Clover Point

Oak Bay

Toronto St Sim c

View St

Ave

C " )

Oak Bay Ave

d mon Rich

C " )

Oak Bay

Pandora Ave

les St har

St

Leighton Rd

St C

eri or

Government St

Sup

St ie

Johnson St

Courtney

Belleville St

gb Be

Cook St

rf St

Langley St

Wha

St

C " )

Balmoral Rd

Vancouve r St

Store St

C " ) C " )

Fisgard St

ta m Ki

Inner Harbour

Caledonia Ave

Herald St

Rd

Eri e

A " )

Chatham St

Douglas St

d eR Tye

St

Broad St

Hereward Rd

Catherine St

C " )

Upper Harbour

Esquimalt Rd

Victoria Harbour

Haultain St Bay St

Wils on

Arena

Richmond Rd

C " )

Community Facilities

Municipal Boundaries

Skinner St

.25

C " ) A " )

St

t ge S Brid

St

C

ard Blansh

Cra igfl ow er

Pine

" )

ide Ave Hills

dE

Rd

Dominio n Rd

Go rge R

Shelbourne St

Jut lan

dR d

C " )

3 - 5%

Dr ter cas

son S Finlay

ide Rd E

n Do

Bu rn s

0 - 3%

North Dairy Rd

Ave

Tolmie

Slope Analysis

McNeill Bay

6.0 RECOMMENDED

NETWORK

6.1 NETWORK PLANNING PHILOSOPHY ‘HUB AND SPOKES’

The recommended bicycle network was developed based on a ‘Hub and Spoke’ framework as the overall network planning philosophy to ensure that a minimum grid network was established that provided connections to all destinations and neighbourhoods throughout the city.

THE HUB

The network framework centres on providing a dense network of bicycle facilities within the ‘hub’ of the city. This area includes the downtown and the surrounding Rock Bay, North Park, Harris Green, and Fairfield neighbourhoods.

NEIGHBOURHOOD CONNECTIONS

The final component of the network consists of Secondary Routes that would connect people from their homes and smaller locations to the Primary Network. This component of the network fills in gaps in the Primary Network and ensures connections are provided to all destinations within the City. These Secondary Routes are proposed to result in a network that ensures that all residents are located within less than 400 metres of a Primary or Secondary Route, and that all destinations within the City have access to a bicycle route within close proximity.

The downtown is a major destination for employment, commercial retail, tourism, government services and cultural activities. In the City's OCP, the downtown is part of the Urban Core, which is set to welcome 50% of the 20,000 new residents projected to come to the city. The downtown also facilitates travel to Vic West, the Galloping Goose Regional Trail, and the E&N Regional Trail. As a result, a majority of Victoria residents travel to, from, and through the downtown.

The Cycling Potential analysis identified several neighbourhoods surrounding the downtown core as having a high cycling potential.

SPOKES TO THE NEIGHBOURHOODS

Extending out from the ‘hub’, the ‘spokes’ in this network would be high quality AAA facilities that would connect the downtown and surrounding neighbourhoods to and from each of the neighbourhoods across the city, as well as ensuring regional connections beyond the City of Victoria. These spokes are referred to as Primary Routes of the proposed bicycle network. The spokes are proposed to result in a Primary Network spacing outside the ‘hub’ of 800 metres.

54

#BIKETORIA Final Report

THE ‘HUB AND SPOKE’ FRAMEWORK PROVIDES A DENSE NETWORK OF BICYCLE FACILITIES WITHIN THE DOWNTOWN CORE COMPLEMENTED BY HIGH QUALITY CONNECTIONS TO THE NEIGHBOURHOODS. SUPPORTING NEIGHBOURHOOD CONNECTIONS COMPLETE THE NETWORK.

North-South #1

Finlayson/Jutland Hillside Tolmie/Vine

East-West #2

Haultain/King Bay Chatham/Coronation

Pandora/Oak Bay/ Esquimalt Johnson/Oak Bay Yates/Fort

East-West #4

The zones and corridors that were considered are shown to the right.

North-South #3

A “Minimum Grid Corridor Analysis” workbook was created to provide base information on potential corridors for consideration (see Appendix B). To develop a network that reaches each neighbourhood, potential north-south and east-west corridors were identified. The potential corridors were then organized into zones to ensure that the network considered spacing between AAA facilities. The city was split into seven zones (three north-south zones and four eastwest zones). Within each zone, three to five potential corridors were reviewed. This provided an extensive number of variables regarding the road components, and multi-modal, bicycle and land use considerations and enabled the ability to compare and contrast potential routes. This workbook was complemented by current and future transit routes, as well as the network analyses provided in the previous chapter.

St Charles/Belmont Begbie/Shelbourne Richmond Irving/Richardson/ Davie/Lee

East-West #1

Under the guiding principles and 'hub and spoke' framework, potential components of the network were reviewed and analyzed based on available information and building on the analysis completed during the 2014 Bicycle Network Update.

David Foster Harbour Pathway Tyee/Craigflower Wharf/Store Government/Gorge Douglas Blanshard

East-West #3

Reviewing the entire road network within the City of Victoria, there are many different options for designing an AAA network of cycling infrastructure. Therefore, the Guiding Principles (Comfortable, Complete, Convenient, Demand and Doable) and the ‘hub and spoke’ framework guided the network design process. These principles and framework were returned to frequently throughout the network identification process to ensure the network met these desires.

North-South #2

6.2 NETWORK PLANNING PROCESS

Humboldt/Brooke Richardson Fairfield Dallas/Cresent

Quadra Vancouver/Fifth Cook/Cedar Hill Moss/Grant

55

M11: CORRIDOR ANALYSIS EXCERPT FROM MINIMUM GRID CORRIDOR ANALYSIS WORKBOOK (APPENDIX B)

56

#BIKETORIA Final Report

Based on the guiding principles, 'hub and spoke' framework and network planning best practices, a number of priority corridors were identified.

In other cases, there were multiple parallel corridors that required extra consideration. The corridors that were further analyzed against the network planning and prioritization principles are described below:

Douglas Street

Government Street

Priority Issues: [1] Transit corridor on Douglas [3] Access to Burnside/Gorge neighbourhood [2] Feasibility to build by 2018 Advantage: Victoria’s main street, downtown business support for re-design of Douglas, retail commercial, opportunities to have positive impacts beyond cycling

Advantage: Pedestrian section, bicycle lanes north of Pandora, brewery district, redevelopment of Rock Bay, retail commercial

Challenges: Transit priority route (bus/bike lanes and LRT long term)

Challenges: One-way section, pedestrianized, tour buses

Quadra Street

Vancouver Street

Cook Street

Priority Issues: [1] Destinations

[2] Proximity to other network corridors

Advantage: Destinations - downtown, Quadra Street Village; directness opportunity for street enhancement Challenges: Priority bus route, right of way

[3] Feasibility by 2018

[4] Aesthetics

Advantage: Aesthetically pleasing, recognized bike route, access to Beacon Hill Park, Crystal Pool, Royal Athletic Park, retail businesses at Pandora

Advantage: Destinations - waterfront, Beacon Hill Park, Cook St Village, North Park Village, connects to Saanich’s complete street

Challenges: Directness (number of jogs north of Bay), topography in some locations, direct access to destinations

Challenges: Topography north of Hillside

57

Gorge Road

Burnside Road

[1] Connection to network [2] Safety

Priority Issues: [3] Burnside/Gorge Neighbourhood Plan (Complete Streets)

Advantage: Connection to Jutland and residential areas, scenic, direct access to the Galloping Goose, connects to Government St, opportunity to improve streetscape

Advantage: Destinations: retail businesses, Tillicum Elementary School (Saanich); regional connection, flat, wide right of way, through neighbourhood, opportunity to improve streetscape

Challenges: Topography in Saanich portion of Gorge, road width

Challenges: Connection to the network

Note: As this area is part of the Burnside Gorge Neighbourhood Plan and Transportation Study, there is close alignment the #Biketoria plan and the Burnside Gorge Neighbourhood Plan that is underway.

The draft network and key decision corridors were presented to the Technical Advisory Committee for feedback. Members of the Committee provided extensive input that was used to refine the network. This process confirmed the 2014 Network and led to the recommendation of the Primary and 2018 AAA Network.

2014 Network, AAA Network and Priority Projects

58

+

2014 Public Engagement

#BIKETORIA Final Report

+

Council’s 2015 Strategic Plan

+

Guiding Principles + Framework

+

Additional Network Analysis

+

World Class Cycling Expertise

+

Stakeholder + Public Engagement

=

Enhanced Bicycle Network

NETWORK REFINEMENT

Following the Interim Report and initial recommended 2018 AAA Network, additional analysis and public and stakeholder engagement was completed. This process was used to refine the proposed network and identify alternative routes in response to additional information and public and stakeholder engagement.

Four key routes were considered for alternative alignments.

Begbie Street/Shelbourne Street Fairfield Road Cook Street Government Street/Gorge Street

BEGBIE STREET/SHELBOURNE STREET AND OFFSHELBOURNE

The Begbie Street/Shelbourne Street corridor was originally identified because this route provides access to key destinations and a regional connection to the University of Victoria. In addition, one portion of this route already has space designated for people on bicycles with buffered bicycle lanes.

Through further analysis, several facility design and implementation challenges were identified. Specifically, the implementation of protected bicycle lanes along this route would be challenging because: It is a Frequent Transit Network corridor; Extensive on-street residential parking removal would be required between Bay Street and Hillside Avenue; Topography of Begbie Street; Drainage concerns (water pooling at road edge) along Shelbourne Street between Bay Street and Hillside Avenue; and

In addition, because there are no major destinations except Hillside Mall directly on the Begbie Street/Shelbourne Street corridor, an alternative alignment was explored.

The recommended Off-Shelbourne route is a neighbourhood bikeway that avoids many of the challenges mentioned above, but still provides access to Hillside Mall.

During the public consultation process, there was 67% support for the Shelbourne alignment and 32% for the Off-Shelbourne alignment.

FAIRFIELD ROAD

Fairfield Road was initially identified as the preferred cycling access to the Fairfield neighbourhood because it provides direct access from downtown and destinations including two schools, a community centre and Fairfield Plaza.

Through further analysis, several facility design and implementation challenges were identified. Specifically, the implementation of protected bicycle lanes along this route would be challenging because: It is a Frequent Transit Network corridor; Narrow road width with limitation to provide bus landing pads; and, On-street residential parking removal would be required along the entire corridor.

The recommended Humboldt Street/Richardson Road alignment is a local transit network corridor and has gentler topography. In addition, with lower vehicle traffic volumes and speeds there is an opportunity for this corridor to be a neighbourhood bikeway. During the public consultation process, there was strong support for the Richardson Road alignment with multiple letters of support.

Heritage street trees which limit ability to widen the road.

59

COOK STREET

Cook Street was initially identified as a recommended corridor because of its length, route directness, and extensive number of destinations, including urban villages, commercial businesses, schools, health, and community facilities.

Through further analysis and public consultation, a number of issues arose, including: On-street commercial parking removal; Traffic operations related to removal of turning lanes; and Support for Vancouver Street as a designated bicycle route.

Based on these concerns, a more detailed analysis was completed that compared the impacts of providing AAA cycling facilities on either Cook Street or Vancouver Street. This evaluation is summarized below:

COOK STREET EXTENT

VANCOUVER STREET

Dallas Road to Haultain Street

Park Boulevard to Kings Road

No cycling facility

Signed bicycle route

One-way protected bicycle lanes

Neighbourhood bikeway with one-way protected bicycle lanes between Caledonia and Meares

DESTINATIONS

Direct access to Dallas Road, Beacon Hill Park, Cook Street Village, North Park Village, Victoria Health Unit, George Jay School

Direct access to Beacon Hill Park, Cathedral School (private), Harris Green commercial area, Royal Athletic Park, Crystal Pool and Fitness Centre

TOPOGRAPHY

Gentle topography with slight hill along majority of the corridor

Majority gentle topography with more grade on south end and more small hills

TRAFFIC OPERATIONS

Increased delays at the intersections of Bay Street and Fort Street

Traffic diversions recommended at Caledonia Street, Meares Street and Pakington Street with a 30 km/h speed limit along the corridor

CURRENT CYCLING FACILITY RECOMMENDED AAA CYCLING FACILITIES

CONNECTIONS

60 #BIKETORIA Final Report

Northbound PM peak hour vehicle travel time increase Connects directly to Pakington Street (Humboldt Street), Richardson Street, Fort Street, Pandora Avenue and Haultain Street

Connects directly to Humboldt Street, Richardson Street, Fort Street, Pandora Avenue and Kings Road.

Connect indirectly to Haultain Street

COOK STREET PARKING

CYCLING SAFETY

TRANSIT

VANCOUVER STREET

Loss of half of the on-street vehicle parking along the corridor (outside Village Centres)

Loss of majority of on-street vehicle parking between Caledonia Street and Meares Avenue

21 reported cycling collisions to ICBC between 2009 and 2013 (4.2/year)

18 reported cycling collisions to ICBC between 2009 and 2013 (3.6/year)

3 cycling hotpot locations (at least 2 reported cycling collisions) at Bay Street, Pandora Avenue, and Meares Street

3 cycling hotspot locations (at least 2 reported cycling collisions) at Yates Street, Fairfield, and Caledonia Avenue

Local transit route

No transit routes

Very slight public support at Neighbourhood Salons (54%)

PUBLIC AND STAKEHOLDER INPUT

Stakeholders:

♦♦ ♦♦

Letter of support from George Jay Elementary School Parent Advisory Committee Petition against parking removal for bicycle facilities in Cook Street Village signed by a majority of business owners

Strong support but not majority at Neighbourhood Salons (46%)

Based on this analysis and public feedback, the recommended #Biketoria network corridor is Cook Street. With strong public support for the continuation of Vancouver Street as a cycling and greenway corridor, it is recommended that the quality of cycling along Vancouver Street should not be compromised by any cycling improvements on Cook Street. Vancouver Street should continued to be developed as a greenway to be enjoyed by residents and visitors.

61

GORGE ROAD

Gorge Road was initially identified as part of the #Biketoria network. Through further analysis, a number of issues were raised, including: It is a Frequent Transit Network corridor; and, With re-allocation of a vehicle travel lane for bicycle facilities there are significant travel time delays for motor vehicles in the westbound direction.

In response to these challenges, a detailed review compared the potential of Gorge Road, Burnside Road and the Doric Connection (a potential neighbourhood bikeway with off-street path connections) as AAA cycling corridors.

Based on these concerns, a more detailed analysis was completed that compared the impacts of providing AAA cycling facilities on either Gorge Road, Burnside Road, or the Doric Connection. This evaluation is provided on the following page.

BURNSIDE GORGE ALIGNMENTS GORGE ROAD BURNSIDE ROAD DORIC CONNECTION 62

#BIKETORIA Final Report

GORGE ROAD

BURNSIDE ROAD

DORIC CONNECTOR

EXTENT

Government Road to Harriet Road

Douglas Street to Washington Avenue

Jutland Road to Harriet Road

CURRENT CYCLING FACILITY

Conventional bicycle lane between Jutland Road and Harriet Road

No cycling facility

No cycling facility

RECOMMENDED AAA CYCLING FACILITIES

One-way protected bicycle lane on each side

One-way protected bicycle lane on each side

Neighbourhood bikeway

DESTINATIONS

Connection to Gorge Road Hospital, Selkirk waterfront, commercial areas

Connection to commercial areas

Connection to Burnside Gorge Community Centre and Burnside Elementary School

TOPOGRAPHY

Gentle topography

Gentle topography

Gentle topography except Cecilia Ravine

Significant decrease in vehicle travel time (westbound direction, PM peak)

No impact expected to vehicle travel time

30 km/h speed limit

Direct connection to Government Street

Preferred connection on Douglas Street, which is challenging due to dedicated bus lanes

Connection to Galloping Goose Regional Trail

TRAFFIC OPERATIONS

CONNECTIONS

Potential connection to Galloping Goose Regional Trail

Potential connection to Galloping Goose Regional Trail

Potential connection at Jutland Road to Government Street

PARKING

Currently no on-street vehicle parking on the corridor

Removal of all on-street vehicle parking on the corridor

Limited removal of on-street vehicle parking for safety and sightlines

TRANSIT

Frequent Transit Network corridor

One transit route

No transit

PUBLIC AND STAKEHOLDER INPUT

To be determined through Burnside Gorge Neighbourhood Plan BC Transit is very concerned about impact to transit travel times

To be determined through Burnside Gorge Neighbourhood Plan District of Saanich, which has jurisdiction over Burnside Road west of Washington Avenue, has not identified this route as a priority cycling route

To be determined through Burnside Gorge Neighbourhood Plan

Based on this analysis, Gorge Road is the recommended corridors for inclusion in the #Biketoria network because of its network connections, regional connections, access to the Selkirk waterfront and Galloping Goose Regional Trail, and opportunity to enhance the current cycling facilities along the corridor.

63

6.3 LONG-TERM NETWORK The 2014 Bicycle Network Update process identified a proposed longterm bicycle network based on an analysis of all the information collected during the engagement process, identifying the most frequently identified corridors for improvements, the preferred types of improvements, cycling origins and destinations, and what links had been identified for addition or deletion from the existing network. City staff reviewed their findings with the Technical Working Group and proposed network map was subsequently developed. In designing the long-term bicycle network, staff considered: Public input received from April to June 2014; Connections to bicycle routes in adjacent municipalities; Designation in other plans (e.g. Greenways routes, regional Pedestrian and Cycling Master Plan routes); Existing street classification (posted speed limits, volume, how a road is used); Existing cycling infrastructure on route (e.g. traffic calming, diverters, etc.); Topography; Ideal density for the cycling network grid (i.e., spacing routes approximately 500m apart); Connections between key destinations; and Connections within and between neighbourhoods.

64 #BIKETORIA Final Report

As part of this project, the long-term network was reviewed in order to enhance the recommended bicycle network. This was completed through a series of GIS analyses, review of public feedback and “ground truthing� components of the network. The long-term network originally prepared by the City was extremely comprehensive. It provides: Coverage of planned bicycle facilities across the entire city; Connections to all schools, parks and community facilities; and A network of identified routes that are direct and connected.

As a result, it is recommended that the 2014 network remains generally consistent, except for the addition of corridors that have been identified in the 2018 Priority Network. To ensure the benefits of this long-term network are realized, it is important that the City continues to prioritize bicycle infrastructure through capital planning. This will ensure the long term network is built and enjoyed by residents and visitors alike.

Saanich Saanich

M12: 2014 RECOMMENDED BICYCLE NETWORK

Quadra St

d

ill R da rH

Shelbourne St

Shelbourne St

Richmond Rd

Richmond Rd Fernwood Rd

Fernwood Rd

Southgate St

Richard son St

Southgate St

Richard son St

l Bay Fou

nt Rd sce Cre

nt Rd sce Cre

Toronto St

St

Ross Bay Ross Bay Ross St Cemetery Cemetery ly wood C es r

l Bay Fou

Ross St

Hol

Beacon Hill Park

Hol

Beacon Hill Park

Memorial Cres

Nia ga ra

St

Moss St Memorial Cres

oe

Moss St

Sim c

Rd

Cook St

Vancouve r St

e Rockland Av

Rd

Douglas St Quadra St

Broad St

Douglas St

s St

e Rockland Av

Oak Bay

Men zie

St

Ave

Os Men weg zies o S St t

t For

Oak Bay

t

St

d mon Rich

Os we go S

t For

Rd

Rd

Yates St

Rd

Nia g Da ara lla St sR d

Oak Bay Ave

Johnson St

Yates St

ld ie irf Fa

St

Oak Bay Oak B Oak Bay Ave

ld ie irf Fa

Da lla s

oe

Leighton Rd

Ave

Toronto St Sim c

Leighton Rd

d mon Rich

t

St

Pandora Ave

St

Belleville St

e gbi Be

les St h ar

rS

Pandora Ave

St

St C

eri o

View St

e gbi Be

Balmoral Rd

les St h ar

Sup t

Balmoral Rd

Johnson St

Government St

rS

Government St

eri o

Broughton

Caledonia Ave

St C

Belleville St

Sup

Caledonia Ave

Cook St

St

Langley St

Broad St

Langley St

rf St

rf St

Eri e

St

Ce

an d Jut l

Wha

Wha

View St

Inner Inner Broughton St Harbour Harbour

Eri e

d

da rH Ce

Rd

Rd an d Jut l

Store St

ta m Ki

ta m Ki

Rd

Haultain St

Bay St

Vancouve r St

Rd Ha rri et

Rd Ha rri et n Rd

Dominio Hereward Rd

Esquimalt

n Rd Dominio Hereward Rd

Herald St

Store St

Chatham St

Herald St

d eR Tye

d eR Tye

Upper Upper Harbour Harbour Chatham St

St

Esquimalt Rd

Rd

Dr

Bay St

Wils on

ter cas

Catherine St

Catherine St

St

Esquimalt Rd

Victoria Victoria Harbour Harbour

rd St

rd St

Haultain St

Skinner St

Wils on

SecondarySecondary Network Network

a Blansh

a Blansh

Skinner St

ide Ave Hills

t ge S Brid

St

MunicipalMunicipal Boundaries Boundarie

Topaz Park ide Ave Hills

t ge S Brid

Pine

on S t

Go rge Rd E

Rd

St

Topaz Park

Cra igfl ow er

Rd

0.25 0

Pine

Finlays

Dr

Go rge Rd E

Cra igfl ow er

on S t

n Do

Finlays

ide Rd E

Public Facilities, Institutions, Public Facilities, Ins Parks andParks Openand Space Open Sp

North Dairy Rd

ter cas

Bu rn s

ide Rd E

n Do

Bu rn s

North Dairy Rd

Ave

Tolmie

ill R

Ave

Tolmie

Schools Schools

McNeill Bay McNeill Bay

ly wood C es r

Ross Bay Ross Bay

0.5 0.25

0.5

km

km

1

1

1.5

1.5

2

2

Clover Point Clover Point

65

6.4 PRIMARY NETWORK In addition to the long-term network proposed above, the network has been further grouped into Primary and Secondary routes to reflect the network planning ‘hub and spoke’ philosophy noted above.

This includes a Primary Network of AAA corridors that provide direct connections to and from the downtown and all neighbourhoods within the city, and a supporting Secondary Network that provides access to other destinations throughout the city. It is recommended that the city complete the Primary Network within 5 years to ensure there is greater connectivity within the downtown core.

This Primary Network would place most residents within 400 metres of a Primary bicycle route in the ‘hub’, and within 800 metres of a Primary bicycle route everywhere else in the city.

66 #BIKETORIA Final Report

d

ill R da rH Ce

Rd

Shelbourne St

an d

Rd

Ha rri et

Jut l

ide Ave Hills

a Blansh

Cra igfl ow er

rd St Haultain St

Chatham St

Caledonia Ave

t For

s St

e Rockland Av

Rd

l Bay Fou

Ave

Richard son St

Southgate St

Toronto St

St

Ross Bay Cemetery

Ross St

Hol

Beacon Hill Park

Memorial Cres

Rd

nt Rd sce Cre

Rd

Nia ga ra

St

ld ie irf Fa

Da lla s

oe

Moss St

Sim c

Oak Bay

t

Other AAA Routes (built or designed by others)

d mon Rich

Os we go S

Primary Network

St

les St h ar

t

Oak Bay Ave

St C

rS

Pandora Ave

St

Government St

eri o

Other AAA Routes (buil designed others) Oakby Bay

Leighton Rd

Yates St

View St

Belleville St

Sup

St

Johnson St

Cook St

Broughton

e gbi Be

Balmoral Rd

Vancouve r St

rf St

St

Langley St

Wha

Eri e

Broad St

ta m Ki

Rd

Inner Harbour

Primary Network

Herald St

Store St

Esquimalt Rd

Quadra St

Upper Harbour

d eR Tye

St

Douglas St

Hereward Rd

Catherine St

Wils on

Fernwood Rd

Bay St

Skinner St

Victoria Harbour

Richmond Rd

St

Men zie

n Rd

Dr

Primary Network

Topaz Park

t ge S Brid

Dominio

on S t

ter cas

Finlays

ide Rd E

Go rge Rd E

Pine

Public Facilities, Primary Network Institutions, Parks and Open Space Other AAA Routes (built or Municipal Boundaries designed by others)

n Do

Bu rn s

Schools

North Dairy Rd

Ave

Tolmie

Rd

25

Saanich

M13: PRIMARY NETWORK

McNeill Bay

ly wood C es r

Ross Bay

km 0.5

1

1.5

2

Clover Point

67

Saanich

M14: PRIMARY AND SECONDARY NETWORK

d

ill R da rH Ce

Rd

Municipal Boundaries

Dr

Primary & Secondary Network

Topaz Park

a Blansh rd St

Cra igfl ow er

Haultain St

Chatham St

Caledonia Ave

t For

St

s St

Richard son St

Southgate St

Ave

Men zie

l Bay Fou

Toronto St

St

Ross Bay Cemetery

ly wood C es r

Ross Bay

km 0.5

1

1.5

2

Clover Point

Ross St

Hol

Beacon Hill Park

Memorial Cres

Rd

nt Rd sce Cre

Rd

Nia ga ra

St

ld ie irf Fa

Da lla s

oe

Moss St

Sim c

Oak Bay

t

e Rockland Av

d mon Rich

Os we go S

St

les St h ar

t

Oak Bay Ave

St C

rS

Pandora Ave

Yates St

View St

Government St

eri o

Other AAA Routes (buil designed byBay others) Oak

Leighton Rd

Johnson St

Belleville St

Sup

St

Rd

Broughton

e gbi Be

Balmoral Rd

Vancouve r St

rf St

St

Langley St

Wha

Eri e

Broad St

ta m Ki

Rd

Inner Harbour

Primary Network

Herald St

Store St

Esquimalt Rd

Cook St

Upper Harbour

d eR Tye

St

Douglas St

Hereward Rd

Catherine St

0.25

Wils on

Fernwood Rd

Bay St

Skinner St

Victoria Harbour

Richmond Rd

St

Quadra St

Pine

t ge S Brid

Dominio

ide Ave Hills

Rd

n Rd

Jut l

Go rge Rd E

Shelbourne St

an d

Rd

Ha rri et

on S t

ter cas

Finlays

ide Rd E

n Do

Bu rn s

Public Facilities, Institutions, Parks and Open Space

North Dairy Rd

Ave

Tolmie

Schools

McNeill Bay

7.0 2018

AAA Priority Network

The 2018 All Ages and Abilities network, referred to as the 2018 AAA Cycling Network, connects all areas of the city with a connected grid of cycling facilities. A majority of these routes were identified for improvement during the 2014 engagement process, with the network refined during the #Biketoria technical analysis and recent public engagement.

M15: 2018 AAA NETWORK

Government / Gorge Cook St - Fifth St Harbour Rd - Wharf - Belleville Fort Pandora Begbie - Shelbourne Haultain - Bay Fairfield Other AAA Routes (built or designed by others)

70

#BIKETORIA Final Report

The 2018 AAA Cycling Network is comprised of protected bicycle lanes on major roads and neighbourhood bikeways on local streets. The total network of corridors is over 25km, including the protected bicycle lane on Pandora Avenue from Store to Cook Street that has already been approved for construction. This network extends to and through all of Victoria’s neighbourhoods and will create a comfortable, complete and convenient connection for people on bicycles.

Saanich

2018 AAA NETWORK ANALYSIS

Schools

d

ill R da rH

Dr

Ce

Rd

ide Rd E

Public Facilities, Institutions, Parks and Open Space

Jut l

ide Ave Hills

Caledonia Ave

Broad St

FORT

St

s St

Richard son St

Southgate St

l Bay Fou

Ave

Men zie

HUMBOLDT - RICHARDSON

Toronto St

St

Ross Bay Cemetery

Ross St

Hol

Beacon Hill Park

Memorial Cres

Rd

nt Rd sce Cre

Rd

Nia ga ra

St

ld ie irf Fa

Da lla s

oe

Moss St

Sim c

Oak Bay

t

e Rockland Av

d mon Rich

Os we go S

St

les St h ar

t

t For

St C

rS

Oak Bay

Oak Bay Ave

Yates St

Government St

eri o

Leighton Rd

PANDORA - OAK

Johnson St

View St

Belleville St

Sup

St

Pandora Ave

Vancouve r St

rf St

Langley St

Wha

St

Broughton

e gbi Be

Balmoral Rd

Rd

Store St

HARBOUR EDGE

Inner Harbour

COOK - FIFTH

Herald St

ta m Ki

Rd

Fernwood Rd

Chatham St

Esquimalt Rd

OFF-SHELBOURNE

Cook St

Upper Harbour

d eR Tye

St

Douglas St

Hereward Rd

Catherine St

Wils on

Eri e

Richmond Rd

Bay St

Skinner St

Quadra St

n Rd

rd St

Haultain St

e St

St

Victoria Harbour

HAULTAIN - KINGS

g Brid

Dominio

a Blansh

Cra igfl ow er Rd

Esquimalt

GOVERNMENT - GORGE

Municipal Boundaries

Shelbourne St

an d

Rd

Topaz Park

Go rge Rd E

Pine

400m Buffer

ter cas

Ha rri et

on St Finlays

n Do

Bu rn s

Ave

Tolmie

200m Buffer

North Dairy Rd

McNeill Bay

ly wood C es r

71 Ross Bay

An analysis of 2018 AAA Cycling Network coverage shows that nearly 50 percent of the city’s land area is within 200 m of a bicycle facility comfortable for people of all ages and abilities, while approximately 75 percent of the land area is within 400 m. Over 43 percent of schools, nearly 55 percent of parks, and approximately 75 percent of commercial centers are located within 200m of at least one of these routes. Within 400m of the network, these numbers grow to at least 90 percent of school, 80 percent of parks, and 90 percent of commercial centers.

While network buffers touch each neighbourhood, there is some variation in coverage. For example, while all of downtown is within the 200m network buffer, central Fernwood, and significant portions of James Bay, Oaklands, Hillside/Quadra, and Rockland are further than 200m from the priority network. While a 400m network buffer extends this coverage, James Bay, Rockland, and Oaklands still have significant portions of land without coverage. To achieve complete network coverage will require construction of additional facilities beyond 2018; for example Dallas Road in the James Bay neighborhood is envisioned as a key bicycle connection.

This chapter provides information on each of the eight corridors that make up the 2018 AAA Cycling Network. For each corridor, information is provided regarding: Each corridor’s importance in meeting the network principles; Existing conditions; General issues and opportunities along the corridor; Recommended bicycle facility type; Anticipated impacts and mitigation measures; Order-of-magnitude cost estimates; and, Implementation considerations.

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#BIKETORIA Final Report

This chapter provides a summary of information on each corridor.

For full detailed information, including detailed concept design, traffic operations, transit facilities, and cost estimate components, please refer to the Appendices.

Specifically, this chapter provides the following information for each identified 2018 AAA Cycling Network corridor: NETWORK PRINCIPLES. A review of the #Biketoria network planning principles and how the corridor best meets these network principles.

EXISTING CONDITIONS. Land Use. An inventory of current and future land uses, and expected development or population growth.

Transportation. A review of current multi-modal transportation facilities on the corridor was completed, including the following information:

▪▪ Road Network | Current road characteristics, such as volumes,

road widths and lane configurations, were used to identify appropriate cycling facility types and options to re-configure the road uses to accommodate the bicycle facilities.

▪▪ Pedestrian

Facilities and Accessibility | Working within curb to curb width generally means limited impact to sidewalks, but some corner curb bulges and centre refuge islands are impacted to enable the implementation of cycling facilities.

The addition of pedestrian and cyclist activated traffic lights will increase the convenience and connections for pedestrians.

As well, where a vehicle travel lane is replaced with a protected bicycle lane, there is a buffer created that increases comfort for pedestrians.

On neighbourhood bikeways where vehicle traffic volumes and speeds will be reduced, the pedestrian experience will be improved. It is recommended that through implementation more pedestrian enhancements are identified at both intersections and mid-block crossings where appropriate. Accessibility for

seniors and people with disabilities is particularly important in considering pedestrian facilities. This includes curb drops, accessible bus stops and ease of access from on-street parking.

OPPORTUNITIES AND CONSTRAINTS. General issues and opportunities related to land use, transportation, economic development and public input are summarized.

the corridor was developed. Where cycling facilities already exist in the network, this project provides an opportunity to enhance them to an AAA standard.

RECOMMENDED CYCLING FACILITY. For each corridor the recommended AAA cycling facility was identified based on technical expertise and bicycle planning best practices. These facilities are protected bicycle lanes (one or two-way) or a neighbourhood bikeway.

▪▪ Cycling Facilities | An inventory of current cycling facilities on

▪▪ Transit

| Transit is an important part of the transportation system in Victoria and plays an important role in reaching the City’s goals related to GHG emissions, air quality and creating an equitable community.

This project has attempted to avoid corridors that have been identified as part of BC Transit’s identified Frequent Transit Network (FTN). When this is not possible, mitigation measures have been identified to limit the impact cycling facilities can have on transit performance and bus stop accessibility. Please see Appendix E for further information on how the project responded to transit priorities.

▪▪ Vehicle parking | Most corridors have vehicle parking on one

or more sides of the street. Parking removal was identified as a concern, and a parking analysis identified adjacent on-street time-limited parking and off-street private parking that is available for visitors and customers of the area.

▪▪ Loading

| For businesses, having loading zones to load and unload goods is important and was retained as much as possible. Where loading does cross a protected bicycle lane, the lane could be raised to enable convenient loading and unloading of any goods. Passenger loading zones are also very important for seniors and people with disabilities and require specific focus during more detailed design of these facilities.

IMPACTS. With a mandate to build a network of cycling facilities by 2018, all facilities were designed within the current curb-to-curb dimensions. This requires a re-allocation of road space, primarily from current cycling facilities, vehicle parking or vehicle travel lanes.

The impacts of these re-allocations were evaluated for:

▪▪ Cycling

| Relative increase in safety and comfort for people on bicycles.

▪▪ Pedestrians

and Accessibility | Impact on pedestrian facilities and associated comfort, safety and connectivity.

▪▪ Transit

| Impact on transit operations (travel time) and transit stop facility design

▪▪ Trees | Impact on street trees and boulevards.

▪▪ Traffic operations | Analysis (level of service, queuing lengths and travel time) on current and proposed facilities.

▪▪ Parking | Inventory of parking loss relative to parking in the area.

IMPLEMENTATION CONSIDERATIONS. Recommendations are provided related to additional public consultation, capital infrastructure option or network connections.

A COMPREHENSIVE CORRIDOR REVIEW IS PROVIDED IN APPENDIX D. 73

MITIGATING IMPACTS

As the City move towards implementing the 2018 AAA Cycling Network, there are a number of common issues and impacts on several corridors. These concerns were raised through the analysis and public consultation process. The City should seek to mitigate these impacts in subsequent phases of design. Several common impacts and potential mitigation measures are described below.

PEDESTRIANS AND ACCESSIBILITY

It is important that the installation of the bicycle facilities along the recommended corridors do not compromise the experience and access of people walking. In a limited number of cases, curb corner bulges are recommended for removal to allow the installation of protected bicycle facilities. In those cases, it is recommended that a pedestrian waiting area be developed as part of the buffer to the protected bicycle lane.

Overall, the installation of bicycle facilities, including both protected bicycle lanes and neighbourhood bikeways, will improve the pedestrian experience. Protected bicycle lanes provide a buffer between sidewalks and vehicle travel lanes. Neighbourhood bikeways reduce vehicle speeds and traffic volumes, which increases the comfort, safety and enjoyment of pedestrians. It is recommended that additional pedestrian facilities and amenities, including crosswalks and benches, be integrated during the detailed design phase of the #Biketoria project.

74

#BIKETORIA Final Report

TRANSIT

Transit is an important form of sustainable transportation and the City would like to grow transit ridership. It is therefore essential that transit service is not compromised by the addition of All Ages and Abilities bicycle facilities on City roads. The #BIKETORIA planning process has identified a number of measures to minimize the impact bicycle facilities will have on the current and future transit network.

Impacts on transit have been minimized by: Avoiding Frequent Transit Network corridors where possible; Placing bicycle facilities on one side of the street (for example the north side of Fort Street) to avoid interaction with transit vehicles; Identifying a range of transit stop designs that provide accessible and comfortable waiting and access for transit users.

TREES

The design of bicycle facilities within road curb-to-curb avoids impact on almost all trees and greenery along the recommended corridors. It is recommended that the City explore opportunities to provide additional greenery in the buffers of the protected bicycle lanes.

VEHICLE OPERATIONS

Motor vehicle operations, including signalized intersection operations and travel time, were analyzed for proposed changes to each corridor. As vehicle volumes in the City have been decreasing in recent years, on many corridors there is excess road capacity.

This allows vehicle lanes to be re-allocated to bicycle facilities with generally minimal impacts on motor vehicle operations. Where impacts on motor vehicle operations are identified, mitigation measures such as traffic signal timing optimization, additional turning lanes, or potential re-configuration of cross streets has been considered.

VEHICLE PARKING

To install bicycle facilities within the current curb-to-curb width, road space re-allocation is required in many cases. Depending on the road design, adjacent land uses, and community needs, space is often re-allocated from current bicycle facilities (bicycle lanes), vehicle travel lanes or vehicle parking lanes.

On-street vehicle parking, both residential and commercial vehicle parking, is important to both residents, visitors and customers. Of particular importance is the use of parking by seniors and people with disabilities.

It is recommended that any vehicle parking that is removed for bicycle facilities be replaced by additional parking in the close vicinity to the corridor. These spaces can be created by changing the parking regulations (for example, residential parking to become time-limited parking, or the creation of flex parking that allows for both residential and time-limited parking). Key on-street parking spaces should be designated for people with disabilities or passenger loading to ensure accessibility to businesses. The City should also consider the creation of new vehicle parking spots where road space allows for angle parking.

It is important that additional consultation regarding on-street vehicle parking be completed before the installation of bicycle facilities to ensure that the mitigation measures meet the needs of the local community.

LOADING ZONES

Loading zones are essential for business to receive goods and allow for business to be successful. Loading zones have been identified as a priority to be retained along the recommended corridors.

Additional consultation with individual businesses is recommended to ensure that the recommended loading configurations will meet the needs of the local businesses. In some cases, specific loading

75

FORT STREET 76

#BIKETORIA Final Report

7.1 CORRIDOR CHARACTERISTICS Fifth St.

7.1.1 FORT STREET

Fort Corridor

Wharf St. to Pandora Ave.

Forming an important part of the hub of the network downtown and being a key east-west connection to and from the downtown core, Fort Street is recommended as part of the 2018 AAA Network. It is a busy retail street that would benefit from enhanced cycling facilities.

Key destinations along this east-west route are the waterfront, downtown and Fort Street commercial businesses, Central Middle School, Greater Victoria Art Gallery, and Stadacona Centre.

Kings

Rd. Haultain St.

Ha

rb

ou

Cook St.

d. rR

Government St.

Bay St.

rne

ou

elb

Sh

St.

Pandora Ave.

Wharf St.

Oak Bay Ave.

Reviewing the key principles of the #Biketoria project, this route and facility best meets the criteria of:

Fort St.

SEGMENT A

SEGMENT B

SEGMENT C Fa ir

#COMFORTABLE ▪▪ The enhancement of

fie

ld

SEGMENT D

Rd .

the existing painted bicycle lane into a protected facility will increase safety and comfort for people who cycle along this corridor. By locating the protected bicycle lane on the north side of the street, conflict with transit is greatly reduced.

#COMPLETE ▪▪ This corridor connects Wharf Street, Government Street and

Cook Street before connecting to the Pandora - Oak Bay Avenue corridor.

#CONVENIENT ▪▪ This corridor provides access to waterfront, downtown and Fort Street businesses, Central Middle School, Greater Victoria Art Gallery, and Stadacona Centre. A two-way cycling facility between Wharf Street and Yates Street will enable people on bicycles greater access to these destinations.

#DEMAND ▪▪ There is the

highest cycling potential within the downtown and Harris Green neighbourhoods, which this corridor travels through.

Fort Street was identified as the fourth most important corridor during the #Biketoria public consultation.

#DOABLE ▪▪ Working within 2018.

curb-to-curb, this facility can be constructed by

77

EXISTING CONDITIONS LAND USE

OPPORTUNITIES AND CONSTRAINTS

CURRENT FORT STREET - WHARF STREET TO COOK STREET

♦♦

Commercial, multi-family residential

FORT STREET - COOK STREET TO OAK BAY AVENUE

♦♦

Commercial, multi-family residential, institutional

OPPORTUNITIES

FUTURE FORT STREET - WHARF STREET TO COOK STREET

♦♦

Increase residential development downtown

FORT STREET - COOK STREET TO OAK BAY AVENUE

♦♦

Development at Fort Street and Cook Street; expansion of the Greater Victoria Art Gallery

TRANSPORTATION

ROAD NETWORK

Downtown core and secondary arterial to Yates Street; Arterial between Yates Street and Oak Bay Avenue

TRUCK ROUTE

No

PEDESTRIAN Sidewalks on both sides for entire corridor; High FACILITIES volume pedestrian traffic downtown CYCLING FACILITIES

78

South-bound conventional bicycle lane between Blanshard Street and Yates Street. Conventional bicycle lanes between Yates Street and Oak Bay Avenue.

TRANSIT

Frequent Transit Network corridor: #15 UVic/Esquimalt (every 7-15 minutes) #14 Vic General/UVic (every 10-15 minutes) #11 UVic/Tillicum Mall (very 10-15 minutes)

VEHICLE PARKING

There is vehicle parking along both sides of Fort Street for a majority of the corridor. From Wharf Street to east of Cook Street there is metered parking, with additional time limited parking east to Craigdarroch Road.

#BIKETORIA Final Report

♦♦ ♦♦

Enhancing current conventional bicycle lanes to protected bicycle lanes Alignment of protected bicycle lane on the north side of the street eliminates any impacts on transit

CONSTRAINTS ♦♦ ♦♦ ♦♦

Transition between two-way to one-way facility at intersection of Fort Street and Yates Street Road width north of Harrison Road creates challenges to obtain minimum width for the protected facility Topography- hill between Cook Street and Pemberton Road

KEY

Option 2 RECOMMENDED CYCLING FACILITY

Between Wharf Street and Yates Street: Two-Way Protected Bicycle Lane

Legend:

This facility is recommended because:

Sidewalk

Preferred Option 3 Two-way separated cycle lane on north side of street

volumes and Fort Vehicle Streettraffic - Segment ‘D’speeds warrant physical separation of cycling facilities; Possible Solutions

AAA Cycle Facility

Allows two-way access to the corridor for people on bicycles; Bus Stop / Platform

Option 1

Option 3

Existing

North side alignment minimizes interactions with transit vehicles; Bus Pocket / Parking

Parallels design of Pandora Avenue Protected Bicycle Lane; and,

Travel Lane More efficient use of road space than a one-way facility on Fort Street and Yates Street.

Parking Lane

Between Yates Street and Oak Bay Avenue: One-Way Protected Bicycle Lane This 2facility Option

KEY

is recommended because:

Vehicle traffic volumes and speeds warrant physical separation of cycling facilities; Corresponds with two-way vehicle traffic; and,

Legend:

Preferred Option 1 Enhance existing facilities: One-way separated cycle lane each way

Retention of vehicle centre turn lane to allow turning movements Sidewalk into driveways and side streets.

AAA Cycle Facility

Option 3

Bus Stop / Platform

Bus Pocket / Parking

Travel Lane

Parking Lane

79

IMPACTS Cycling | Increased comfort and safety along the entire corridor with the enhancement of existing painted bicycle lanes to protected bicycle lanes. Two-way protected bicycle lane allows greater convenience for people accessing destinations along the corridor.

Pedestrians & Accessibility | Reduction of pedestrian bulbouts at Fort Street/Douglas Street and Fort Street/Linden Avenue.

Transit | There is no expected impact on transit stops and operations between Wharf Street and Yates Street. Bus stop configurations are impacted between Yates Street and Oak Bay Avenue. As a Frequent Transit Network corridor, transit travel time should be monitored.

IMPLEMENTATION CONSIDERATIONS In order to implement protected bicycle lanes along Fort Street, it is recommended that additional targeted consultation and information be shared with all business owners along Fort Street. This process should focus especially on any vehicle parking and loading concerns.

As well, some business owners on this corridor have voiced support for the implementation of additional mid-block crosswalks, which could be considered as part of implementation.

The provisions of a two-way cycling facility requires education for people on bicycle using the facilities to ensure they feel safe and comfortable on the facility.

Trees | There is no expected impact on trees.

Vehicle Operations | Between Wharf Street and Cook Street

▪▪ All

existing configuration intersections perform adequately in both the AM and PM peak period.

▪▪ The

proposed road configuration does not significantly impact traffic performance overall.

▪▪ There

are delays at the Blanshard Street intersection in the PM peak hour, particularly eastbound left turn movements for vehicles.

▪▪ There are delays at the Cook Street intersection with longer north and southbound queues on Cook Street.

▪▪ The proposed road configuration does not result in increases in corridor level travel time.

Vehicle Parking | The recommended facility would require the removal of 27 of the 224 on-street time limited metered parking spots between Wharf Street and Cook Street.

80 #BIKETORIA Final Report

“

”

Fort previously introduced bike lanes and this was tremendously beneficial. More upgrades are doable, realistic, and would get high volumes ~ Survey respondent, 2015

HARBOUR EDGE

#COMFORTABLE ▪▪ The introduction of a two-way protected bicycle lane along the waterfront will increase the comfort and safety of people on bikes and other road users.

#COMPLETE ▪▪ This corridor connects

the Galloping Goose Regional Trail to Pandora Avenue and connects to the Humboldt Road connection to Cook Street. It also connects to the David Foster Harbour Pathway, which is being developed.

#CONVENIENT ▪▪ This corridor provides

access to downtown and waterfront businesses, the Empress Hotel, Royal British Columbia Museum, the Legislature and Fisherman’s Wharf.

#DEMAND ▪▪ There is strong support for safe and comfortable connections to the Galloping Goose Regional Trail. As well, in fall 2014 a petition with over 250 signatures supported installing bicycle lanes on Wharf Street was submitted to the City.

#DOABLE ▪▪ Working within 2018.

curb-to-curb, this facility can be constructed by

82 #BIKETORIA Final Report

Kings

Rd. Haultain St.

ou

Cook St.

d. rR

Government St.

Bay St.

rb

Sh

Pandora Ave.

SEGMENT B

Fort St.

SEGMENT C

SEGMENT D SEGMENT E SEGMENT F SEGMENT G

Fa ir

fie

ld

Rd .

rne

ou

elb

SEGMENT A Wharf St.

Reviewing the key principles of the #Biketoria project, this route and facility best meets the criteria of:

Harbour Edge Corridor

Galloping Goose Regional Trail to Dallas Road

Ha

This waterfront protected bicycle lane will provide new opportunities for residents and tourists to enjoy the inner harbour while reaching destinations in Vic West, downtown and James Bay. While having important economic development potential, it also meets the #Biketoria Network Principles

Fifth St.

7.1.2 HARBOUR EDGE

St.

Oak Bay Ave.

EXISTING CONDITIONS OPPORTUNITIES AND CONSTRAINTS

LAND USE

CURRENT HARBOUR ROAD

♦♦ Multi-family residential,

commercial and industrial

WHARF STREET

♦♦ Commercial, transportation.

BELLEVILLE TO ST. LAWRENCE STREET

♦♦ Institutional, commercial,

transportation, residential.

FUTURE

OPPORTUNITIES

HARBOUR ROAD

♦♦ Future phases of Dockside

Green; Expansion of Hope Point Shipyards

♦♦ Development of the inner harbor and downtown residential growth.

BELLEVILLE TO ST. LAWRENCE STREET Terminal.

TRANSPORTATION Majority arterial or collector

TRUCK ROUTE

Yes

PEDESTRIAN Sidewalks on both sides for entire FACILITIES corridor; High volume pedestrian traffic CYCLING FACILITIES

♦♦ Currently ♦♦

WHARF STREET

♦♦ Development of Belleville

ROAD NETWORK

HARBOUR ROAD

Conventional bicycle lanes on Harbour Road

TRANSIT

#15 UVic/Esquimalt travels on Wharf Street between Pandora Avenue and Fort Street

VEHICLE PARKING

Along and near Wharf Street are 139 on-street timelimited parking posts and 1,304 off-street private parking spots

1.3m bicycle lanes on each side of the street, New development proposal for Dockside Green, commercial node;

WHARF STREET/ BELLEVILLE STREET

♦♦ Sidewalk in front of Belleville ♦♦ ♦♦ ♦♦ ♦♦ ♦♦

Terminal to be widen in 2017 (2016 budget allocation for conceptual design); 2015-19 priority cycling project, Waterfront, Tourism opportunities, High profile location, and Connection to David Foster Harbour Pathway.

CONSTRAINTS HARBOUR ROAD

♦♦ Recently ♦♦

built road and sidewalk, Industrial property on east side (driveways);

WHARF STREET/ BELLEVILLE STREET

♦♦ Diverse

♦♦

road users- high pedestrians volumes, buses on Government section (in front of Empress), pedicabs, horses, ferry traffic.

Multiple events: marathons and other races; parades.

PUBLIC SUPPORT

♦♦ Previous public support for

buffered bike lanes with petition with 281 signature

(September 2014)

83

RECOMMENDED CYCLING FACILITY Two-Way Protected Bicycle Lane This facility is recommended because: Vehicle traffic volumes and speeds warrant physical separation of cycling facilities; Safe and easy connection between new Johnson Street bridge multi-use path and Galloping Goose Regional Trail; More efficient use of road space than a one-way facility on each side of the road; Along west side of Wharf Street and Belleville Street there are fewer driveways and accesses; and, Provides a waterfront touring experience.

Though two-way cycling facilities are not usually recommended on a road with two-way vehicle traffic, in this case the waterfront location minimizes interactions between vehicles and bicycles at intersections.

CONSTRAINTS Cycling | Enhanced facilities on Harbour Road will create an AAA connection to the Galloping Goose Regional Trail. The introduction of a two-way protected bicycle lane along Wharf Street to Fisherman’s Wharf will greater increase the comfort of people riding this route and encourage residents and tourists to use the facility.

Pedestrians and Accessibility | Overall, there is limited impact on pedestrian facilities along this corridor. On Wharf Street near Fort Street, a shared use path is proposed for a short section due to the tight constraints of the corridor. The reduction in pedestrian comfort and safety will be minimal due to the short distance. As well, people on bicycles will be directed to slow down in this section.

On Government Street at the Inner Harbour the pedestrian experience will be enhanced with the removal of vehicle traffic lanes and addition of wide buffers and refuge islands to enhance street crossings.

Transit | Transit routes operate along Wharf Street and Government Street along this corridor. There is no expected impacts on transit operations along the corridor. Bus stop configurations are impacted on Wharf Street.

Vehicle Operations | Wharf Street and Government Street between Yates Street and Belleville Street, all existing configuration intersections perform adequately in both the AM and PM peak period.

The bicycle-related road capacity reductions do not measurably affect traffic performance and do not result in increases in corridor level vehicle travel time.

Vehicle Parking | No parking will be removed on Harbour Road.

On Wharf Street between Yates Street and Government Street, approximately 28 metered parking spots are proposed to be removed to install a two-way protected bicycle lane. Within a short walking distance of Wharf Street there are currently 139 on-street timelimited parking spots and 1,304 off-street private parking spots.

Therefore, 20% of on-street time limited parking would be removed in this segment. Refer to the Appendices for additional information.

84 #BIKETORIA Final Report

On Belleville Street, Pendray Street, Quebec Street and Erie Street, approximately 30 parking spots would be removed to install a protected bicycle lane.

Trees | No trees or boulevard are expected to be impacted with this design. There may be an opportunity for additional boulevard treatment on Government Street in the inner harbor with the width of the protected bicycle lane buffer.

Ongoing consultation with the James Bay Neighbourhood Association to ensure facility meets community interests; Meet with pedi-cab and taxi operators regarding waiting areas on Government Street; and, Ensure connection/signage to David Foster Harbour Pathway as it is developed.

IMPLEMENTATION CONSIDERATIONS

Harbour Road provides an important connection between the new Johnson Street Bridge and Galloping Goose Regional Trail. With the current vehicle traffic volumes and speeds and conventional bicycle lanes, the connection is relatively comfortable. With more development expected, an AAA facility is preferred. With industrial development it is recommended that further consultation with industrial land owners occurs to ensure safe access to their properties.

The section of Harbour Edge between Pandora Avenue and Pendray Street is a high priority based on its economic development potential with the development of the inner harbor and Belleville Terminal. In the future, this routes could be extended out to Ogden Point to provide alternative transportation options for cruise ship passengers.

In addition, with implementation of this route it is recommended that the City: Meet with all business owners along the corridor to consult regarding any proposed vehicle parking removal;

“

�

Wharf! Great opportunity for a safe, fun experience for tourists with buffered two-way lanes on Wharf. Need to make sure two-way Wharf bike lane easily connects to Johnson St Bridge ~ Survey respondent, 2015

Meet with Belleville Terminal owners and operators regarding vehicle access to the ferry terminals; Explore additional AAA cycling connection to Capital Park and the approved protected bicycle lane;

85

GOVERNMENT STREET / GORGE ROAD

Fifth St.

7.1.3 GOVERNMENT STREET / GORGE ROAD Government Street is a key corridor that has different characteristics along its great length. Through the downtown it includes a pedestrian-priority section which is one-way traffic, it widens north of Fisgard as it travels through a light industrial area and the potential brewery district, and travels by Rock Bay. The northern section of the corridor has painted bicycle lanes that vary in width and road placement. The enhancement of these facilities would encourage access to shops downtown, breweries and Rock Bay as that area develops.

There are concurrent transportation planning projects occurring in this study area. The Burnside Gorge Transportation Study, in conjunction with the Burnside Gorge Neighbourhood Plan, is currently underway. The scope of this study includes the design of five major corridors within the neighbourhood: Government Street, Gorge Road, Burnside Road, Bridge Street and Jutland Road/ Finlayson Street. The #Biketoria project is responsible for identifying appropriate routes as part of an AAA Cycling Network. Therefore, these two projects are aligned closely to ensure safe and accessible bicycle facilities that connect to the Burnside Gorge neighbourhood.

This section provides a corridor analysis of Government Street, and more detailed concept design preferences for the segment of Government Street between Chatham Street and Humboldt Street.

The concept design for the remaining portion of Government Street and Gorge Street will be completed as part of the Burnside Gorge Transportation Study.

Reviewing the key principles of the #Biketoria project, this route and facility best meets the criteria of:

#COMFORTABLE ▪▪ The enhancements of

the conventional bicycle lanes between Fisgard Street and Gorge Road to fully protected bicycle lanes will increase the comfort and safety of people on bikes and other road users.

Government - Gorge Corridor Gorge Rd. to Humbolt St.

SEGMENT E

SEGMENT D Kings

ALT. B

Rd. Haultain St.

Bay St.

Ha

rb

ou

Cook St.

d. rR

Government St.

ALT. A

SEGMENT C

Wharf St.

SEGMENT B

rne

ou

elb

Sh

Pandora Ave.

St.

Oak Bay Ave.

Fort St.

SEGMENT A

Fa ir

fie

ld

Rd .

#COMPLETE ▪▪ This corridor connects the downtown corridors of Harbour Edge, Fort Street and Pandora Avenue with Gorge Road and the Kings Road/Haultain Street corridor.

#CONVENIENT ▪▪ This corridor provides access to downtown, Chinatown, brewery district, and proximity to Rock Bay and the Selkirk waterfront.

#DEMAND ▪▪ Government

Street was identified as the third most important corridor through the #Biketoria public engagement.

#DOABLE ▪▪ Within curb-to-curb, this facility can be constructed by 2018.

87

EXISTING CONDITIONS

TRANSPORTATION

ROAD NETWORK

LAND USE

CURRENT GORGE TO CHATHAM ROAD

♦♦ Commercial, multi-family residential

CHATHAM TO YATES STREET

♦♦ Commercial, multi-family residential, institution

YATES TO HUMBOLDT STREET

♦♦ Commercial, multi-family residential

FUTURE GORGE TO CHATHAM ROAD

♦♦ Development of Humber Green

TRUCK ROUTE

Secondary arterial or downtown core road

Majority Yes

PEDESTRIAN Sidewalks on both sides for entire corridor; High FACILITIES volume pedestrian traffic in pedestrian priority area between Yates Street and Humboldt Street

Village

CHATHAM TO YATES STREET

♦♦ Preservation of historic

CYCLING FACILITIES

buildings and Chinatown

YATES TO HUMBOLDT STREET

♦♦ Increased residential

Conventional bicycle lanes between Fisgard Street and Gorge Road

TRANSIT

#3 Beacon Hill / Gonzales (every 20 minutes) between Humboldt Street and Fort Street #25 Maplewood / Admirals Walk / Colwood Exchange (every 30-60 minutes) between Yates Street and Pandora Avenue

VEHICLE PARKING

Between Chatham Street and Humboldt Street there are 77 on-street time-limited metered parking spots.

development

OPPORTUNITIES AND CONSTRAINTS

OPPORTUNITIES ♦♦ Pedestrian priority section

already prioritizes non-vehicle transportation

CONSTRAINTS ♦♦ One-way vehicle traffic ♦♦

88 #BIKETORIA Final Report

between Yates Street and Wharf/Humboldt Street (pedestrian priority section) Access and loading for trucks and commercial buses in pedestrian priority section

RECOMMENDED CYCLING FACILITY Between Chatham Street and Yates Street: One-Way Protected Bicycle Lane This facility is recommended because: Vehicle traffic volumes and speeds warrant physical separation of cycling facilities; One-direction cycling facilities preferred with two-way vehicle traffic; Parking for commercial businesses is retained; and Traffic operations are not impacted with removal of one vehicle travel lane.

Between Yates Street and Humboldt Street: Contraflow Protected Bicycle Lane This facility is recommended because: Enables efficient and safe two-way travel for people on bikes on a one-way vehicle street; Enables the street to remain open for vehicle traffic; Enables efficient connection to one-way protected bicycle lanes at transition at Chatham; and Allows additional roadway space for loading vehicles.

89

CONSTRAINTS

IMPLEMENTATION CONSIDERATIONS

Cycling | Increased comfort and safety along the entire corridor with the addition of protected bicycle facilities.

Pedestrians and Accessibility | The proposed cycling facility on Government Street between Yates Street and Wharf Street will increase pedestrian comfort with the reduction of one lane of vehicle traffic along this corridor.

Transit | Transit operations are not expected to be impacted with the introduction of additional cycling facilities. New bus stop configurations are required.

Trees | There is no expected impact on trees.

Vehicle Operations | Between Chatham Street and Yates Street, all existing configuration intersections perform adequately in both the AM and PM peak period. Bicycle-related road capacity reductions do not measurably affect traffic performance and do not result in increases in corridor level travel time.

Vehicle Parking | The recommended facility would require the removal of 48 of the 77 on-street time limited metered parking spots between Chatham Street and Wharf Street.

“

�

Very important to get from South Victoria to the North. I know there are challenges but this one is important ~ Survey respondent, 2015

90 #BIKETORIA Final Report

The implementation of bicycle facilities on Government Street between Yates Street and Wharf Street requires additional engagement with adjacent business owners to identify loading requirements and options. As well, the City should work with the Downtown Victoria Business Association (DVBA) to incorporate the results of their design charrettes. The DVBA has design interests in street trees, widening sidewalks between Johnson and Pandora, and revitalizing the Government/Wharf/Humboldt intersection.

There was strong public support through the engagement process for pedestrianization of this segment of Government Street. Based on the impact on vehicle traffic and lack of support from adjacent businesses this is not the preferred option at this time. It is recommended that the City continue to explore temporary and pilot closures (Sunday Streets, Car-free Day) to evaluate the positive and negative impacts of closing this portion of the street to vehicles.

PANDORA - OAK BAY AVENUE

Kings

Haultain St.

lane from the current one-way conventional bicycle lane along the corridor.

#COMPLETE ▪▪ Enabling two-way bicycle traffic on this segment of Fort Street will

connect seamlessly into the Pandora Avenue facility west of Cook Street, and connect to Cook Street, Off-Shelbourne Street and Fort Street facilities.

#CONVENIENT ▪▪ This facility provides greater access for people on bicycles to visit businesses along Fort Street and travel to Stadacona Centre and Oak Bay Avenue Village.

#DEMAND ▪▪ During the public

engagement process, the public identified Pandora Avenue as the most important corridor in the #Biketoria network.

#DOABLE ▪▪ With additional

stakeholder engagement with BC Transit and business owners in Oak Bay Village, this facility is doable by 2018.

92

#BIKETORIA Final Report

Cook St.

Government St.

d. rR rb

#COMFORTABLE ▪▪ Great increase in cycling comfort with a two-way protected bicycle

Rd.

Bay St.

Ha

rne

ou

elb

Sh

Pandora Ave.

Wharf St.

Reviewing the key principles of the #Biketoria project, this route and facility best meets the criteria of:

Pandora - Oak Bay Corridor Cook St. to Foul Bay Rd.

ou

The construction of the protected bicycle lane on Pandora Avenue between Store Street and Cook Street presents the perfect opportunity to extend the facility east to the Oak Bay border. This corridor would then provide access to Royal Jubilee Hospital, retail business on Oak Bay Ave and Oak Bay itself.

Fifth St.

7.1.4 PANDORA - OAK BAY AVENUE

SEGMENT A SEGMENT B

Fort St.

Fa ir

fie

ld

Rd .

St.

Oak Bay Ave.

SEGMENT C

EXISTING CONDITIONS LAND USE

TRANSPORTATION

CURRENT PANDORA STREET (COOK STREET TO BEGBIE STREET)

♦♦ Commercial, multi-family residential

PANDORA STREET (BEGBIE STREET TO OAK BAY AVENUE)

♦♦ Commercial, multi-family residential, park

FUTURE OAK BAY AVENUE

♦♦ Neighbourhood planning process

ROAD NETWORK

TRUCK ROUTE

Secondary arterial

Majority yes

PEDESTRIAN FACILITIES Sidewalks on both sides for entire corridor

CYCLING FACILITIES

OAK BAY AVENUE

♦♦ Commercial, multi-family residential

Buffered bicycle lane (east bound) on Pandora Avenue between Cook Street and Begbie Street. On Pandora Avenue between Begbie Street and Fort Street there is a buffered bicycle lane north bound and a conventional bicycle lane southbound.

TRANSIT

Frequent Transit Network corridor: #2 Oak Bay/Willows/Downtown (every 15 minutes) #27 Gordon Head/Downtown (every 6-12 minutes) #28 Majestic/Downtown (very 11-22 minutes)

VEHICLE PARKING

There is vehicle parking along both sides of Pandora Avenue for a majority of the corridor.

OPPORTUNITIES AND CONSTRAINTS

OPPORTUNITIES

CONSTRAINTS

♦♦ Connection to the Pandora

♦♦ Transition between two-way

♦♦

♦♦

♦♦ ♦♦

Avenue Cycle Track that will be completed in 2016 Enhancing current conventional bicycle lanes to protected bicycle lanes Connection to Stadacona Centre and Oak Bay Avenue Village Connection to Oak Bay

♦♦

to one-way bicycle facilities at Begbie Street Impact on commercial parking in Oak Bay Avenue Village Topography with large hill near Fernwood Avenue

93

RECOMMENDED CYCLING FACILITY Between Cook Street and Begbie Street: Two-Way Protected Bicycle Lane This facility is recommended because: Vehicle traffic volumes and speeds warrant physical separation of cycling facilities; Allows two-way movements for people on bikes; Seamless integration with Pandora Avenue Protected Bicycle Lane being constructed between Store Street and Cook Street; and, More efficient use of road space than a one-way facility on Pandora Avenue and Johnson Street.

Between Begbie Street and Foul Bay Road: One-Way Protected Bicycle Lane This facility is recommended because: Vehicle traffic volumes and speeds warrant physical separation of cycling facilities; and, Corresponds with two-way vehicle traffic.

94 #BIKETORIA Final Report

CONSTRAINTS Cycling | Increased comfort and safety along the entire corridor with the enhancement of existing painted bicycle lanes to protected bicycle lanes. Two-way protected bicycle lane allows greater convenience for people accessing destinations along the corridor.

Pedestrians | These is no expected impact on pedestrian facilities.

Transit | There is no expected impact on transit stops and operations on this corridor. Bus stop configurations are impacted along the corridor. As a Frequent Transit Network corridor, transit travel time should be monitored.

Traffic Operations | Oak Bay Avenue (Fort Street to Foul Bay Road):

▪▪ All

IMPLEMENTATION CONSIDERATIONS In order to implement protected bicycle lanes along Oak Bay Avenue, it is recommended that additional targeted consultation and information be shared with business owners along Oak Bay Avenue.

This process should focus on vehicle parking concerns.

In addition, the City of Victoria should work with the District of Oak Bay to connect cycling facilities and extend this corridor further.

Within Oak Bay Avenue village, it is important to minimize the impact of parking removal. Additional design work should be completed to modify current parking setback requirements in this area. As well, the City should examine opportunities to mitigate any parking loss along this segment.

existing configuration intersections perform relatively adequately in both the AM and PM peak period. Significant queuing (queues equal to or greater than 100 m) is occurring at all three signals.

▪▪ Bicycle-related road capacity reductions do not measurably affect traffic performance.

▪▪ Bicycle related improvements do not result in increases in corridor level travel time.

Vehicle Parking | The recommended facility would require the removal of almost all on-street parking on Oak Bay Avenue between Richmond Avenue and Foul Bay Road. This would remove 66 parking spots, or approximately 47% of on-street time limited parking within a block of the Village.

Trees | There is no expected impact on trees.

“

”

It would be wonderful to have a protected bike lane from Oak Bay Ave at Foul Bay to Government Street. ~ Survey respondent, 2015

95

HAULTAIN STREET / KINGS ROAD

Kings

Haultain - Kings Corridor

Rd.

Haultain St.

Bay St.

SEGMENT C

o rb

Cook St.

ur

.

Rd

Government St.

SEGMENT A

Ha

Haultain Street is a very popular east-west route that is enjoyed by recreational cyclists, commuters and families. It provides access to the Royal Jubilee Hospital and Oak Bay to the east and Quadra Village and Quadra Community Centre to the west. With minimal interventions along the majority of the corridor, it can become an AAA facility.

.

Fifth St

7.1.5 HAULTAIN STREET / KINGS ROAD

Wharf St.

Pandora Ave.

rne

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elb

Sh

To connect to Government Street, it is recommended the Kings Road/Off-street pathway be developed through the addition of traffic lights and statutory rights-of-way.

SEGMENT D

SEGMENT B St.

Oak Bay Ave.

Fort St.

Reviewing the key principles of the #Biketoria project, this route and facility best meets the criteria of:

Fa ir

fie

ld Rd .

#COMFORTABLE ▪▪ The introduction of traffic light controlled crossing at major streets along this corridor and the development of a connection between Dowler Place and Government Street will make a comfortable corridor for people of all ages and abilities on bicycles.

#COMPLETE ▪▪ This route provides

#DEMAND ▪▪ Haultain Street

#CONVENIENT ▪▪ This corridor provides

#DOABLE ▪▪ The segment

an important east-west link that connects to Government Street, Cook Street and the Off-Shelbourne neighbourhood bikeway.

access to Royal Jubilee Hospital, Quadra Village, Quadra Community Centre and the Burnside Gorge neighbourhood.

is already a very popular cycling route. The connection through to Government Street will allow more people to access this facility.

between Dowler Place and Richmond Street can be completed with minimal intervention by 2018. Working with private land owners, the Kings Road connection to Government Street can be constructed by 2018.

97

EXISTING CONDITIONS TRANSPORTATION

LAND USE

CURRENT KINGS ROAD (DOWLER PLACE TO GOVERNMENT STREET)

♦♦ Industrial, commercial, multifamily residential

KINGS ROAD/BLACKWOOD STREET

♦♦ Commercial, institutional, multifamily residential, single family residential

HAULTAIN STREET (COOK TO RICHMOND STREET)

♦♦ Commercial, single-family residential

FUTURE KINGS ROAD (DOWLER PLACE TO GOVERNMENT STREET)

♦♦ Neighbourhood planning process

KINGS ROAD/BLACKWOOD STREET

♦♦ Neighbourhood planning

process; The Summit care residence at Quadra Village

ROAD NETWORK

Majority local, except Haultain Street between Cook Street and Shelbourne Street is a secondary collector

TRUCK ROUTE

No

PEDESTRIAN Sidewalks on both sides for entire corridor FACILITIES CYCLING FACILITIES

HAULTAIN STREET (COOK TO RICHMOND STREET)

♦♦ Commercial, single-family residential

No cycling facilities on this corridor.

TRANSIT

#22 Vic General / Hillside Mall (every 20-30 minutes)

VEHICLE PARKING

There is residential on-street parking provided along the majority of this corridor.

OPPORTUNITIES AND CONSTRAINTS

OPPORTUNITIES

CONSTRAINTS

♦♦ Haultain Street is already a very ♦♦ Kings Road/Off-road path will

♦♦

popular route for people on bikes, is a very pleasant road to ride on and a majority of corridor is relatively flat Kings Road portion travels by Quadra Village and the Quadra Community Centre

♦♦ ♦♦

98 #BIKETORIA Final Report

require statutory rights-of-way to be acquired by the City and two new pedestrian/cyclist activated traffic lights to be installed on Blanshard Street and Douglas Street Pedestrian/cyclist controlled traffic lights required at Cook Street Transit route on Haultain Street between Fernwood Road and Shelbourne Street – recommended re-routing to Bay Street

RECOMMENDED CYCLING FACILITY Neighbourhood Bikeway This facility is recommended because: Vehicle traffic volumes and speeds enable the implementation of a neighbourhood bikeway; Enhances the pleasant experience of riding a bike on Haultain Street with increasing safety; Limited impact on on-street parking; Opportunity for neighbourhood involvement with traffic calming and placemaking opportunities; and, Relatively low investment required.

CONSTRAINTS Cycling | Increase cycling comfort along Haultain Street. Greatly increase comfort and safety by providing an alternative to Bay Street between Dowler Place and Government Street.

Pedestrians and Accessibility | The introduction of pedestrian/ cyclists controlled lights at Cook Street, Blanshard Street and Douglas Street will enhance pedestrian safety, comfort and connectivity.

Transit | It is recommended that the local transit route that runs between Fernwood Road and Shelbourne Street be re-routed along Bay Street. This will require more analysis and public consultation with BC Transit.

Trees | The central median on Blanshard Street may be impacted and require the removal of one or two trees to enable through traffic to Kings Road.

Vehicle Operations | Along Kings Road/Haultain Street between Dowler Place and Richmond Road, it is recommended that the maximum traffic speed be 30 km/h and traffic diversions are place to discourage through traffic.

Vehicle Parking | Limited parking removal on the neighbourhood bikeway. Parking will only be removed for safety and sight lines. It is recommended that the existing angle parking be re-configured to back-in angle parking or parallel parking to increase safety for people on bikes.

99

IMPLEMENTATION CONSIDERATIONS In order to enhance the comfort and safety of people on bikes along Haultain Avenue between Fernwood Road and Shelbourne Street, it is recommended that the #22 bus be re-routed to Bay Street. This will enable greater traffic calming and diversion to occur without impacting the operations of this bus route. This proposed realignment requires extensive engagement with BC Transit and the local residents to ensure quality transit service is maintained.

The Kings Road connection between Dowler Place and Government will require resources to implement additional pedestrian/cyclist activated traffic lights and obtain statutory rights-of-way from private land owners.

It is recommend the City approve a bylaw to limit speeds on this corridor to 30 km/hour.

“

Make sure to calm around Cedar Hill Road.

People use Haultain as a short-cut. Traffic calming necessary. Make it easier to connect with Cook, Bay, and Vancouver Streets.

100 #BIKETORIA Final Report

�

~ Survey respondent, 2015

OFF-SHELBOURNE

Reviewing the key principles of the #Biketoria project, this route and facility best meets the criteria of:

Fifth St.

Off-Shelbourne Corridor

OFF-SHELBOURNE ROUTE

N. Dairy Rd. to Pandora Ave.

Kings

Rd. Haultain St.

Bay St.

ou

Cook St.

d. rR

Government St.

SEGMENT B

rb

SEGMENT C rne

ou

elb

Sh

St.

Pandora Ave. Wharf St.

This neighbourhood bikeway connects Pandora Avenue to the border with the District of Saanich. This route provides access to Hillside Mall and a key connection to the University of Victoria as regional facilities are developed. As well, the route travels near Victor School, Oaklands Elementary School and the Victoria School for Ideal Education. A majority of the route travels along Shakespeare Street, where the City has recently created a multi-use trail through the park. The north end of this corridor is located on Selbourne Street and offers an important connection to Saanich and potential future cycling facilities.

SEGMENT A

Ha

7.1.6 OFF-SHELBOURNE

SEGMENT D

Fort St.

SEGMENT B

Fa ir

fie

ld

Rd .

#COMFORTABLE ▪▪ A neighbourhood bikeway

with low traffic volumes and speeds will offer a comfortable cycling experience. The introduction of pedestrian/cyclist activated traffic lights at Bay Street and Shelbourne Street will allow safer connections.

#COMPLETE ▪▪ This route connects with Pandora Avenue and Haultain Street, as well as regional connections in Saanich.

#CONVENIENT ▪▪ This route provides

access to local schools, Hillside Mall and important regional connection to Saanich and the University of Victoria.

102 #BIKETORIA Final Report

#DEMAND ▪▪ During the public engagement process, this corridor was of lower

importance but has been recognized through other planning processes as an important regional connection.

#DOABLE ▪▪ With minimal interventions, this facility is doable by 2018.

Oak Bay Ave.

EXISTING CONDITIONS OPPORTUNITIES AND CONSTRAINTS

LAND USE

CURRENT STANLEY AVENUE/ PEMBROKE STREET/ SHAKESPEARE STREET

STANLEY AVENUE/ PEMBROKE STREET/ SHAKESPEARE STREET

SHELBOURNE STREET (MYRTLE AVENUE TO NORTH DAIRY ROAD)

SHELBOURNE STREET (MYRTLE AVENUE TO NORTH DAIRY ROAD)

♦♦ Single family residential

♦♦ Commercial, multi-family residential

♦♦ Single family residential

♦♦ Commercial, multi-family residential

Majority local, except Shelbourne Street is a secondary arterial

TRUCK ROUTE

Majority no, except Shelbourne Street

CONSTRAINTS

♦♦ Existing traffic calming along the ♦♦ Connection from Pandora Ave corridor ♦♦ Transition at Bay Street (off-set ♦♦ Construction of sidewalk on intersection) Pembroke Avenue in 2016 ♦♦ Lighting on multi-use pathway ♦♦ Connection to Saanich’s bicycle ♦♦ Visibility of route (signage and ♦♦ ♦♦

TRANSPORTATION

ROAD NETWORK

OPPORTUNITIES

FUTURE

facilities, including Shelbourne Street and Landsdowne Avenue Connection to University of Victoria Connection to Oaklands Elementary School, Victor School and Hillside Mall

♦♦

pavement markings; promotion) Topography of Pembroke Avenue

PEDESTRIAN Sidewalks on both sides for the majority of the FACILITIES corridor except on a portion on Pembroke Street.

CYCLING FACILITIES

No dedicated cycling facilities on this corridor. There is a multi-use path constructed through Oaklands Park.

TRANSIT

Shelbourne Street is a Frequent Transit Network corridor: #4 UVic/Downtown (every 6-10 minutes) #22 Vic General/Hillside Mall (every 20-30 minutes)

VEHICLE PARKING

There is residential on-street parking provided along the majority of this corridor.

103

RECOMMENDED CYCLING FACILITY Stanley Avenue/Pembroke Street/Shakespeare Street: Neighbourhood Bikeway This facility is recommended because: Vehicle traffic volumes and speeds enable the implementation of a neighbourhood bikeway; Limited impact on on-street parking; Opportunity for neighbourhood involvement with traffic calming and placemaking opportunities; and, Relatively low investment required.

104 #BIKETORIA Final Report

CONSTRAINTS Cycling | Increase comfort on Off-Shelbourne route and improved connections with addition of a pedestrian/cyclist controlled traffic light at Bay Street.

Pedestrians and Accessibility | The introduction of pedestrian/ cyclists controlled lights at Bay Street will enhance pedestrian safety, comfort and connectivity.

Transit | There is no transit on this corridor.

Trees | There is not anticipated impact on trees.

Vehicle Operations | Along the local neighbourhood portion of this corridor it is recommended that the maximum traffic speed be 30 km/h and traffic diversions are place to discourage through traffic.

Vehicle Parking | Limited parking removal on the neighbourhood bikeway. Parking will only be removed for safety, sightlines or to install traffic calming infrastructure.

“

The side streets running parallel to Shelbourne (west of Shelbourne) already provide good options. It’s just being able to get to them safely that’s the issue. ~ Survey respondent, 2015

”

IMPLEMENTATION CONSIDERATIONS Though the Off-Shelbourne alignment is recommended as part of the 2018 AAA Network, it is important for the City to continue to pursue a long term cycling facility on Shelbourne Street. This is particularly important if the District of Saanich approves dedicated bicycle facilities along the length of Shelbourne Street. The Begbie/ Shelbourne route already has designated space for cycling along a portion of it with buffered bicycle lanes. As well, the City has obtained some additional right-of-way on the west side of Shelbourne Street as properties have developed. It is recommended that the City continue to pursue additional right-of-way to enable a facility to be built in the future that does not conflict with frequent transit or the preservation of heritage trees.

It is recommend the City approve a bylaw to limit speeds on the local streets on this corridor to 30 km/hour.

105

HUMBOLDT - RICHARDSON STREET

Reviewing the key principles of the #Biketoria project, this route and facility best meets the criteria of:

Humboldt - Richardson Corridor Government St. to Foul Bay Rd.

Kings

Rd. Haultain St.

rb

ou

Cook St.

d. rR

Government St.

Bay St.

Ha

rne

ou

elb

Sh

St.

Pandora Ave.

Wharf St.

The Humboldt Street/Richardson Street corridor provided access from downtown into the Fairfield neighbourhood. Richardson Street is already a popular route for people riding bicycles and has a relatively low volume of vehicle traffic. The installation of traffic diverters and calming would make it a pleasant riding and walking corridor. It would also connect to McNeill Avenue in Oak Bay. In addition to traffic calming, certain segments would be converted to a one-way street for motor vehicles, while maintain two-way flow for transit, people on bicycles, and people walking.

Fifth St.

7.1.7 HUMBOLDT - RICHARDSON STREET

Oak Bay Ave.

SEGMENT A

SEGMENT B

Fort St.

Richardso

n St. (Alt ernative

Fa ir

fie

ld

corridor)

Rd .

#COMFORTABLE ▪▪ Increase in cycling

comfort with the development of a Neighbourhood bikeway along a pleasant route with limited topography.

#COMPLETE ▪▪ This route connects facilities.

to Government Street and Cook Street

#CONVENIENT ▪▪ This route provides

access in short proximity to schools, parks and commercial areas and to regional destinations in Oak Bay.

#DEMAND ▪▪ During the public engagement process, this corridor was of lower

importance as it is already a comfortable neighbourhood to cycle in with high cycling mode share.

#DOABLE ▪▪ With minimal interventions, this facility is doable by 2018.

107

TRANSPORTATION

EXISTING CONDITIONS LAND USE

CURRENT HUMBOLDT / PAKINGTON STREET (GOVERNMENT TO COOK STREET)

♦♦ Commercial, institutional,

multi-family residential, single family residential

COOK STREET (PAKINGTON TO RICHARDSON STREET)

♦♦ Commercial, multi-family residential

FUTURE HUMBOLDT / PAKINGTON STREET (GOVERNMENT TO COOK STREET)

♦♦ Further development of the waterfront and downtown residential development

RICHARDSON STREET (COOK TO RICHMOND AVENUE)

♦♦ Neighbourhood planning

ROAD NETWORK

Majority local, except Humboldt Street is designated ‘Downtown Core’ and Cook Street is designated arterial

TRUCK ROUTE

Majority no, except Cook Street

Sidewalks are currently provided on both sides of

PEDESTRIAN the street for almost the entire length of the corridor.

FACILITIES There is no full east side sidewalk on Richardson Road between Lotbiniere Ave and St. Charles Street.

CYCLING FACILITIES

TRANSIT

Humboldt Street: Drop off location of #4 UVic/Downtown and #21 Camosun-Interurban/Downtown Richardson Street - local transit corridor: #1 Downtown/Richardson (Six times a day)

VEHICLE PARKING

There is residential on-street parking provided along the majority of this corridor.

process

RICHARDSON STREET (COOK TO RICHMOND AVENUE)

♦♦ Commercial, institutional,

multi-family residential, single family residential

Richardson Street from Vancouver Street to Foul Bay Road is a signed bicycle route.

OPPORTUNITIES AND CONSTRAINTS

OPPORTUNITIES ♦♦ Relatively flat topography ♦♦ Already popular cycling ♦♦

108 #BIKETORIA Final Report

route, especially for those travelling between Oak Bay and downtown Victoria Neighbourhood support for traffic calming and cycling facilities on Richardson Street (Rockland Neighbourhood Association and private residents)

CONSTRAINTS ♦♦ Transit access for very low ♦♦

frequency transit route Access to destination on Fairfield Road (Sir James Douglas School, Fairfield Plaza, Margaret Jenkins School) all require additional local connections to Richardson Street

RECOMMENDED CYCLING FACILITY Humboldt Street from Government Street to Douglas Street: Two-way Protected Bicycle Lanes This facility is recommended because: Vehicle traffic volumes and speeds warrant physical separation of cycling facilities; Corresponds with two-way vehicle traffic; and, Provides highly visible connection between downtown and neighbourhood bikeway.

Humboldt Street from Douglas Street to Vancouver Street/ Pakington Street/Richardson Street: Neighbourhood Bikeway This facility is recommended because: Vehicle traffic volumes and speeds enable the implementation of a neighbourhood bikeway; Limited impact on on-street parking; Opportunity for neighbourhood involvement with traffic calming and placemaking opportunities; and, Relatively low investment required.

109

CONSTRAINTS Cycling | Increase comfort on Richardson Street and improve connects with addition of a pedestrian/cyclist controlled traffic light at Cook Street.

Pedestrians and Accessibility | The introduction of pedestrian/ cyclists controlled lights at Cook Street will enhance pedestrian safety, comfort and connectivity.

Transit | There is not expected impact on transit stops and operations on this corridor.

Trees | There is not anticipated impact on trees.

Vehicle Operations | Along the local neighbourhood portion of this corridor it is recommended that the maximum traffic speed be 30 km/h and traffic diversions are place to discourage through traffic.

Vehicle Parking | Limited parking removal on the neighbourhood bikeway. Parking will only be removed for safety, sightlines or to install traffic calming infrastructure.

IMPLEMENTATION CONSIDERATIONS It is recommended that this corridor be considered for a pilot project to ensure successful traffic calming and diversion. To ensure this route is successful it is important that neighbourhood connections to adjacent destinations are completed, this includes the schools, parks and commercial areas. Based on public input and the high cycling mode share that already exists in the Fairfield neighbourhood, this is a low priority corridor for implementation.

This route requires additional consultation with BC Transit regarding the proposed re-routing of buses that unload on Humboldt Street and to monitor any performance impacts on the #1 Downtown/ Richardson bus.

It is recommend the City approve a bylaw to limit speeds on the local streets on this corridor to 30 km/hour.

110 #BIKETORIA Final Report

“

I prefer the Richardson option for these reasons: 1) it is more pleasant to ride there, scenic, 2) not as much traffic, 3) not as many driveways or parked vehicles or buses, 4) not as hilly, 5) it seems wider, 6) more direct to Oak Bay than Fairfield, 7) still close to schools, 8) great connections when Cook, Fort, Pandora bike lanes done, 9) it’s cheaper than the Fairfield plan and would be an easier sell I think ~ Survey respondent, 2015

”

COOK STREET

Cook - Fifth Corridor Chatham St. to Humbolt St.

Kings

Rd.

SEGMENT A Haultain St.

Bay St.

rb

ou

Cook St.

d. rR

Government St.

SEGMENT B

Ha

rne

ou

elb

Sh

SEGMENT Pandora Ave.C Wharf St.

Cook Street is a direct and continuous north-south corridor that reaches from the waterfront at Dallas Road all the way to the Saanich border. This corridor travels along Cook Street between Dallas Road in the south and Haultain Street in the north, before traveling into the residential neighbourhoods along Graham Street and Fifth Street to connect to Saanich. The corridor provides direct connections to many commercial areas and important destinations, including Cook Street Village, North Park Village and Quadra Village.

Though a majority of the corridor does not currently have cycling facilities on it, many people choose this route because of its access to destinations, directness and relatively flat topography for the majority of the corridor.

Fifth St.

7.1.8 COOK STREET

St.

Oak Bay Ave.

Fort St.

Fa ir

fieSEGMENT ld Rd .

Reviewing the key principles of the #Biketoria project, this route and facility best meets the criteria of:

D

SEGMENT E

#COMFORTABLE ▪▪ The introduction of protected bicycle lanes and a neighbourhood

bikeway along this route will greatly increase the safety and comfort for people who cycle along this corridor. The route offers gentle topography along Cook Street.

#COMPLETE ▪▪ This corridor connects directly to all of the east-west corridors: Richardson Street, Fort Street, Pandora Avenue and Haultain Street.

#CONVENIENT ▪▪ This route offers direct access to a significant number of important destinations, such as businesses, parks, health, and school facilities. These destinations include the commercial villages, Beacon Hill and Royal Athletic Park, Cook Street Activity Centre, Victoria Health Unit, and George Jay and Quadra Elementary.

112 #BIKETORIA Final Report

#DEMAND ▪▪ This corridor

already has significant cycling traffic according to Strava data. The south end of the corridor travels through the Fairfield, which already has over 13% commute bicycle mode share. Harris Green and North Park has high cycling potential.

There is also a great need for enhanced cycling facilities through the Hillside/Quadra neighbourhood.

#DOABLE ▪▪ Working within

curb-to-curb, this facility can be physically constructed by 2018. There is additional consultation required with the neighbourhood villages regarding the specific design of the cycling facilities through those busy areas.

Although this is a desirable corridor that was chosen because it meets all the principles of the #Biketoria project, the corridor passes through several neighbourhood villages which require context sensitive design considerations. Design treatments through these special study areas will require further discussions and consultation with impacted stakeholders on an on-going basis through the next phases of design in order to develop design solutions that mitigate their concerns.

EXISTING CONDITIONS LAND USE

CURRENT FIFTH STREET/GRAHAM STREET

♦♦ Single and multi-family residential

COOK STREET (HAULTAIN STREET TO PANDORA AVENUE)

♦♦ Commercial (including North Park Village*), institutional, and single and multi-family residential

COOK STREET (PANDORA AVENUE TO SOUTHGATE STREET)

♦♦ Commercial, single and multifamily residential

COOK STREET (SOUTHGATE STREET TO DALLAS ROAD)

♦♦ Commercial (including Cook

FUTURE

TRANSPORTATION

ROAD NETWORK TRUCK ROUTE

CYCLING FACILITIES

♦♦ Single and multi-family

residential COOK STREET (HAULTAIN STREET TO PANDORA AVENUE)

♦♦ Neighbourhood planning

♦♦ Commercial, single and multi-

family residential COOK STREET (SOUTHGATE STREET TO DALLAS ROAD)

♦♦ Neighbourhood planning process

Street Village*), institutional, and single and multi-family residential

* These neighbourhood villages will require context sensitive design considerations. Design treatments through these special study areas will require further discussions and consultation with impacted stakeholders on an on-going basis through the next phases of design in order to develop design solutions that mitigate their concerns.

Majority yes

PEDESTRIAN Sidewalks on both sides for entire corridor FACILITIES

FIFTH STREET/GRAHAM STREET

process and village revitalization plan COOK STREET (PANDORA AVENUE TO SOUTHGATE STREET)

Graham/Fifth Street are local streets; Cook Street is an arterial or secondary arterial along the corridor

Graham/Fifth Street is a signed bicycle route

TRANSIT

#24 Cedar Hill/Admirals Walk (every 30-60 minutes); #25 Maplewood/Admirals Walk/Colwood Exchange (every 30-60 minutes); #3 Beacon Hill/Gonzales (every 20 minutes)

VEHICLE PARKING

Varies: Graham/Fifth Street has residential parking; time-limited parking in commercial villages; and some residential/unrestricted parking on other portions.

OPPORTUNITIES AND CONSTRAINTS

OPPORTUNITIES ♦♦ Enhancing cycling safety and

♦♦ ♦♦ ♦♦

comfort along the corridor while offering access to a variety of commercial and community destinations Providing safe routes to school for two elementary schools Ability to provide All Ages and Abilities cycling facilities to and through neighbourhood villages Direct corridor with relatively flat topography along Cook Street between Dallas Road and Haultain Street

CONSTRAINTS ♦♦ Potential traffic operation ♦♦ ♦♦ ♦♦

changes within Village Centres with removal of dedicated turn lanes Traffic operation delays at Cook Street/Bay Street intersection and Cooks Street/Fort Street intersection Vehicle travel time delays in the afternoon peak hour northbound Parking and loading impacts in neighbourhood villages, depending on design treatments 113

RECOMMENDED CYCLING FACILITY Fifth Street/Graham Street: Neighbourhood Bikeway This facility is recommended because: Preferred facility on local roads with low vehicle volumes and speeds.

Cook Street (majority of the corridor between Haultain Street and Dallas Road): One-way Protected Bicycle Lanes This facility is recommended because: Vehicle traffic volumes and speeds warrant physical separation of cycling facilities; Corresponds with two-way vehicle traffic; Space reallocated from vehicle travel and parking lanes; and, Retention of vehicle centre turn lane to allow turning movements into driveways and side streets.

114 #BIKETORIA Final Report

COOK STREET (NEIGHBOURHOOD VILLAGES)

OPTION 2: ONE-WAY PROTECTED BICYCLE LANES (REMOVE PARKING ONE SIDES)

Context sensitive designs are required through the two Neighbourhood Villages along the corridor – Cook Street Village and North Park Village. Through discussions with stakeholders, we understand that there are concerns related to impacts on parking, loading, and congestion in particular. As such, several context sensitive design options have been considered through the villages, as discussed below:

This option would provide a protected bicycle lane on each side of the street, but would provide a more comfortable space for bicycle users by removing parking on one side of the street. This would provide facility that provides sufficient width to meet recommended design guideline widths for protected bicycle lanes and buffers.

This option meets all five #Biketoria principles.

OPTION 1: ONE-WAY PROTECTED BICYCLE LANES (MAINTAIN PARKING BOTH SIDES)

OPTION 3: SHARED SPACE

This option would provide a protected bicycle lane on each side of the street, while maintaining the majority of parking. However, with this option the protected bicycle lane would be located immediately adjacent to the passenger side door, introducing potential safety concerns with passenger doors opening. With 3.0 metre motor vehicle travel lanes and 2.4 metre parking lanes, there is sufficient width to provide a 2.2 metre protected bicycle lane on each side of the street, which could be designed to include a buffer on the left side of the protected bicycle lane between passenger doors.

It should be noted that this buffer width would be below current recommended design guideline widths, although type of treatment has been implemented in other communities in constrained width situations in other communities. To minimize concerns with passenger door openings, it is recommended that the protected bicycle lane be raised to sidewalk level in this option, and that pavement markings be provided to raise awareness to bicycle users and vehicle passengers to use caution. This option meets all five #Biketoria principles.

Through the consultation process for the #Biketoria project, several stakeholders raised the possibility of considering a shared space, or woonerf, treatment, though the neighbourhood villages. In this context, bicycle users would share the street with motor vehicles.

However, in order for a shared street to be comfortable for people of all ages and abilities, traffic volumes would need to be significantly reduced to less than 1,000 vehicles per day. This option was not considered further due to the high traffic volumes that exist today.

OPTION 4: CONVENTIONAL BICYCLE LANES (MAINTAIN PARKING BOTH SIDES) Conventional painted bicycle lanes could be provided through the neighbourhood villages while maintaining parking on both sides of the street. However, painted bicycle lanes are not attractive to people of all ages and abilities and does not fulfill the #comfortable guiding principle. This would, however, provide an all ages and abilities connection to the village, although it does not continue through the village.

115

OPTION 5: TERMINATE CORRIDOR AT NEIGHBOURHOOD VILLAGES

OPTION 6: CONSIDER ALTERNATE CORRIDOR

To minimize impacts through the neighbourhood villages, the protected bicycle lane could end at the beginning of the neighbourhood village. This is not a desirable option as it would not fulfill the #comfortable, #complete, or #convenient guiding principles. It should be noted that this option could only be considered at Cook Street Village.

If none of the above options could be considered, the protected bicycle lane could end at the beginning of the neighbourhood village and use alternate corridors. This is not a recommended option as it would not fulfill the #comfortable, #complete, #convenient, or #demand guiding principles.

A summary of the options is provided below:

#COMFORTABLE

#COMPLETE

#CONVENIENT

#DEMAND

#DOABLE

OPTION 1 OPTION 2 OPTION 3 OPTION 4 OPTION 5 OPTION 6 Based on this evaluation, Option 1: One-way protected Bicycle Lanes (Maintain parking both sides) This facility is recommended because: Vehicle traffic volumes and speeds warrant physical separation of cycling facilities; Corresponds with two-way vehicle traffic; Space reallocated from centre turn lane; and, Retention of vehicle parking on both sides identified as a priority of village businesses.

116 #BIKETORIA Final Report

MITIGATE IMPACTS

CONSTRAINTS Cycling | Increased comfort and safety along the entire corridor with protected bicycle lanes and neighbourhood bikeway facilities.

Pedestrians and Accessibility | Removal of curb extensions and centre medians at several locations along the corridor. Protected bicycle lanes provide a greater buffer between vehicle travel lanes and pedestrians and shorten the road crossing distances. Pedestrian experience is enhanced along Fifth/Graham Street with lower vehicle volumes and speeds. Additional pedestrian and cyclist controlled traffic lights at Richardson Street and Haultain Street will increase crossing safety and comfort.

Transit | There is limited impact on transit operations along with corridor as it is a local transit route. Travel time, particularly along Cook Street in the afternoon peak, should be monitored. Bus stop re-locations and configurations have been designed to ensure accessibility at bus stops.

Trees | There is no expected impact on trees or greenery along the corridor.

Vehicle Operations | There is a decreased level of service and increased queuing of vehicles at the Bay Street and Fort Street intersection. The removal of centre turn lanes within the village centres requires additional analysis. There is potential for traffic diversion along parallel corridors.

Vehicle Parking | There is limited on-street vehicle parking removal expected along Fifth/Graham Street except where required for safety or sight lines. The recommended facility along Cook Street would require the removal of 157 of 300 on-street parking spots between Haultain Street and Dallas Road. Within the Cook Street and North Park Village Centres where on-street parking has been identified as a priority, it is expected that 16 out of 86 on-street parking spots would be removed.

IMPLEMENTATION CONSIDERATIONS Through public consultation, this corridor was identified as a priority for implementation. There is also strong support for the preservation of Vancouver Street as a cycling and greenway corridor. Therefore, it is recommended that further improvements are pursued along Vancouver Street in tandem to any upgrades to Cook Street. Vancouver Street improvements include enhancement of the current traffic diversions to allow safe cycling throughways and further traffic calming.

In order to implement protected bicycle lanes along Cook Street, it is recommended that extensive additional targeted consultation and information be shared with both the neighbourhood associations and all business owners and operators along Cook Street. Businesses in both neighbourhood villages raised concerned regarding parking and centre turn removal. With the raised protected bicycle lane design, the on-street parking in these areas has been retained.

Additional analysis and consultation is required regarding turning movements and loading zones within the villages.

The City should work closely with the North Park Neighbourhood Association to align the implementation of this corridor with the neighbourhood planning process, village revitalization planning and the re-paving of Cook Street.

Along the Graham/Fifth Street portion of the corridor, it is recommended that the City implement a 30 km/h speed limit. It is also essential that the City work with the School District regarding access through Quadra Elementary School and with the District of Saanich regarding connecting to their cycling facilities at Tolmie.

117

“

We are happy to see a real emphasis on connecting people to destinations especially children and families with schools and community centres. Specifically, we are very happy to see a protected bike lane planned for Cook Street ~ Letter, 2015

118 #BIKETORIA Final Report

�

GOVERNMENT STREET / GORGE ROAD

Government - Gorge Corridor Gorge Rd. to Humbolt St.

SEGMENT E

SEGMENT D Kings

ALT. B

Rd. Haultain St.

Bay St.

rb

ou

Cook St.

d. rR

Government St.

ALT. A

Ha

SEGMENT C Pandora Ave.

SEGMENT B

rne

ou

elb

Sh

Wharf St.

Gorge Road travels through the Burnside-Gorge Neighbourhood connecting the Humber Green Village Centre to the border of the District of Saanich. A majority of the destinations along this route are commercial businesses. In addition, there are some residential developments and the Gorge Road Hospital along the corridor. There are many competing transportation demands along this corridor, including frequent transit and regional vehicle movement. There is also a strong community interest in increasing road safety, improving pedestrian and cycling facilities, and supporting investment and redevelopment along this corridor.

Fifth St.

7.1.9 GORGE ROAD

St.

Oak Bay Ave.

Fort St.

SEGMENT A

Reviewing the key principles of the #Biketoria project, this route and facility best meets the criteria of:

Fa ir

fie

ld

Rd .

#COMFORTABLE ▪▪ Protected bicycle lanes

will increase the comfort and safety of people riding along the entire length of Gorge Road by upgrading the current conventional bike lanes and adding protected cycling facilities on Gorge between Government and Jutland.

#COMPLETE ▪▪ Gorge Road is best suited to connect to the rest of the 2018 AAA

#DEMAND ▪▪ It is very important that AAA facilities are provided to the Burnside

#CONVENIENT ▪▪ Gorge Road connects to employment destinations at the Selkirk

#DOABLE ▪▪ Though there

Cycling Network. With additional infrastructure it can also connect to the Galloping Goose Regional Trail.

waterfront, Gorge Road Hospital, commercial areas and onto destinations in Saanich.

120 #BIKETORIA Final Report

Gorge neighbourhood. The neighbourhood currently has relatively moderate bicycle commuter share.

are challenging trade-offs in regards to potential vehicle and transit travel operations, it is more ‘doable’ to complete an on-street facility by 2018.

EXISTING CONDITIONS OPPORTUNITIES AND CONSTRAINTS

LAND USE

CURRENT GORGE ROAD

♦♦ Commercial, single and multi-

family residential, institutional

FUTURE GORGE ROAD

♦♦ General Employment, Urban

Residential and Traditional Residential; Development of Rock Bay

OPPORTUNITIES

CONSTRAINTS

♦♦ Enhancing current conventional ♦♦ Ensuring efficient travel ♦♦

bicycle lanes to protected bicycle lanes Connect with District of Saanich Active Transportation corridor

♦♦

operations for frequent transit Impacts on vehicle operations travel time

TRANSPORTATION

ROAD NETWORK TRUCK ROUTE

Arterial

Yes

PEDESTRIAN FACILITIES Sidewalks on both sides for entire corridor CYCLING FACILITIES

Conventional bicycle lanes on both sides of the street between Jutland Road and Harriet Road

TRANSIT

Frequent Transit Network corridor: • #8 Interurban/Tillicum Mall/Oak Bay (every 20-40 minutes) • #11 UVic/Tillicum Mall (every 10-15 minutes)

VEHICLE PARKING

There is no vehicle parking along the entire corridor

121

RECOMMENDED CYCLING FACILITY One-way Protected Bicycle Lanes This facility is recommended because: Vehicle traffic volumes and speeds warrant physical separation of cycling facilities; Corresponds with two-way vehicle traffic; and, Retention of vehicle centre turn lane to allow turning movements into driveways and side streets.

CONSTRAINTS Cycling | Increased comfort and safety along the corridor with the enhancement of existing painted bicycle lanes to protected bicycle lanes.

Pedestrians | Increased comfort for pedestrians with the addition of protected bicycle lanes as a buffer between the sidewalks and vehicle travel lanes.

Transit | There are vehicle travel time operational impacts on this route with the introduction of protected bicycle lanes. Of particular concern is travel time in the westbound direction that requires further analysis and mitigation. Bus stop configurations are impacted along the corridor. As a Frequent Transit Network corridor, transit travel time should be monitored.

Traffic Operations | The reduction of two westbound lanes to one lane is expected to have a significant impact on traffic operations according to the modelling that has been completed. In the Westbound direction in the PM, the model shows an increase of over 10 minutes in travel time between Government Street and Harriet Road. This reduction in travel time may lead to people choosing other parallel routes.

Vehicle Parking | No impact on on-street parking.

Trees | There is no expected impact on trees along this corridor.

122 #BIKETORIA Final Report

IMPLEMENTATION CONSIDERATIONS In order to implement protected bicycle lanes along Gorge Road, the City is encouraged to complete the neighbourhood planning process to determine the appropriate short and long term approach to enhancing cycling facilities along this corridor. As well, additional consultation with BC Transit is essential to identify potential mitigation measures to ensure frequent transit is able to maintain consistent travel times along the corridor. Finally, the City may choose to pursue a longer term option for this route with the acquisition of adjacent property in order to retain two westbound lanes and preserve current travel operations.

8.0 CAPITAL

IMPLEMENTATION PLAN

Based on the guiding principles outlined in Chapter 4, this study identifies a recommended 2018 AAA bikeway network that will extend to and through all of Victoria’s neighborhoods. This network will establish a city-wide minimum grid of AAA bicycle facilities that connects residents to destinations across the City.

This chapter outlines a Capital Implementation Plan to provide the City with guidance regarding the implementation phasing of the 2018 AAA Cycling Network. The Capital Implementation Plan described in this chapter includes: Corridor prioritization; Cost estimates; Network options; Permanent or interim implementation; and, Potential funding sources.

The City of Victoria has already committed $7.75 million of Gas Tax funding towards cycling infrastructure between 2015 and 2020. In addition, the City receives $3 million a year in additional Gas Tax funding that can be used for green infrastructure projects..

124 #BIKETORIA Final Report

IMPLEMENTATION PHASING

A phased implementation approach has been developed based on the network planning principles, the ‘Hub and Spoke’ framework, public input and current and potential financial and human resources. Based on the principle of #Complete, the recommended implementation phases correspond to building out a connected minimum grid of cycling facilities. The full implementation of the network corresponds to Council’s strategic priority of building a network that connects all neighbourhoods across the City.

The ‘Hub and Spoke’ framework identifies a denser network of bicycle facilities within the downtown core (the hub), complemented by high quality connections (the spokes) to the neighbourhoods. Finally, local neighbourhood connections complete the AAA network.

The hub consists of AAA cycling facilities in the downtown core which will allow people to access employment, businesses and services downtown. These corridors will also provide access for people to travel across the city – to Vic West and the Galloping Goose, James Bay, North Park and Fairfield. This approach differs from the previous work of the 1995 Bicycle Master Plan, which recommended that no dedicated cycling facilities be constructed within the downtown area.

The City of Victoria is made up of a series of neighbourhood villages.

The spokes in this network will provide safe and comfortable cycling connections to the neighbourhood village centres. In the future, through regional partnerships, these spokes could be extended to connect to neighbouring municipalities, including Saanich, Oak Bay and Esquimalt.

decades. This includes 41 km of painted bicycle lanes, 2 km of buffered bicycles lanes and 3 bike boxes supporting cyclist movements at intersections. While some of these facilities will be upgraded to AAA facilities, the remaining facilities will remain and continue to play an important role for more experienced bicycle users.

COST ESTIMATES

Order-of-magnitude cost estimates were developed for the 2018 AAA Cycling Network based on recent, local construction pricing as well as costs from similar projects elsewhere in North America. Cost estimates were developed for each of the corridors and applicable segments identified for implementation. These order-of-magnitude costs include all labour and materials, engineering and design and a flexible contingency depending on the level of risk associated with each project. These cost estimates are preliminary in nature, and will be further refined through the detailed design process for each corridor.

Depending on the corridor, costs has been calculated for two versions of implementation: Permanent; and, Interim design.

Neighbourhood connections are also a vital piece of a complete cycling network. Though not the key focus of the #Biketoria project, the City should continue to work with local schools (Safe Routes to Schools), neighbourhood associations and interested groups to identify improving local connections and “low hanging fruit” projects that improve the comfort and safety of people on bikes and encourage more people to bike short distances to local destinations.

This network enhances and connects to the existing network of cycling facilities that the City has constructed over the previous 125

IMPLEMENTATION PHASING OPTIONS

Each phase follows the “Hub and Spoke” approach and aligns with the network principles of ‘complete, convenient and connected.’

As well, each option builds off of the Pandora Avenue Protected Bicycle Lane that will be built between Store Street and Cook Street in 2016. Furthermore, coordination with the existing bicycle infrastructure, both bicycle lanes and off street paths, has played a role for how the phases are defined.

The recommended 2018 AAA Cycling Network is ambitious, and includes an extensive network of 8 corridors and over 25km of proposed AAA bicycle facilities. As such, this section provides implementation phasing scenarios to provide Council with options on how to move forward to implement the proposed network. Four implementation phases have been developed to reflect different levels of ambition/speed in implementation, respond to financial and human resources available, and align with public consultation opportunities.

The recommended phases are:

DESCRIPTION

LENGTH

ESTIMATED INTERIM DESIGN COST (M)

[1] Minimum Grid

A denser grid of cycling corridors in the downtown that builds on the Pandora Avenue Protected Bicycle Lane.

5.4 km

$6.9

Existing approved funding

[2] Complete the Hub

An extension to the hub north of downtown, and additional corridors into the Burnside Gorge and Vic West neighbourhoods.

$3.6

Leveraging other internal sources, Annual Gas Tax allocation

[3] Regional Connections

Spokes into Hillside-Quadra, Fernwood, and Fairfield.

$5.5

Other external funding sources; additional municipal funding

[4] Completing the Network

Remaining corridor segments.

8 km

$11.1

Other external funding sources; additional municipal funding

25.1 km

$27.1

PHASE

TOTAL

3 km 8.7 km

FUNDING SOURCES

The timing of these phases depends on Council direction and financial and human resources allocated for implementation of this project.

Further information on funding opportunities if provided later in this chapter. The cost for implementing the entire 25.1 km network at a permanent level is estimated to be $37.1 million.

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PHASE 1 | MINIMUM GRID This phase would see 5.4 km of connected AAA cycling facilities implemented by 2018. A majority of these facilities would be protected bicycle lanes that would form a grid through the downtown core bounded by Pandora Avenue, Humboldt Street, Wharf Street, and Cook Street. This network would provide access to some, but not all neighbourhoods. The estimated cost for this phase is $6.9 million, which corresponds to the current funding allocated by Council for bicycle infrastructure.

CORRIDOR

EXTENT

LENGTH (KM) PROJECT COST (M) PROJECT COST (M)

Pandora Avenue

Store Street to Cook Street

1.2

$2.1

Wharf Street

Yates Street to Government Street

0.5

$0.8

Humboldt Street

Wharf Street to Cook Street

1.4

$0.6

Cook Street

Pandora Avenue to Pakington Street

1.1

$1.3

Fort Street

Wharf Street to Cook Street

1.2

$2.0

$6.9

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PHASE 2 | COMPLETING THE HUB This phase is 3 km of connected AAA cycling facilities to extend the HUB north up to Kings Road. The implementation of this phase would require further financial resources, which could include aligning with other infrastructure projects and annual Gas Tax funding.

CORRIDOR

EXTENT

LENGTH (KM) PROJECT COST (M) PHASE COST (M)

Kings Road

Government Street to Cook Street

1.2

$0.9

Government Street

Pandora Avenue to Bay Street

0.8

$1.3

Cook Street

Haultain Street to Pandora Avenue

1.0

$1.4

$3.6

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PHASE 3 | REGIONAL CONNECTIONS This phase is 8.7 km of connected AAA cycling facilities to connect to neighbourhoods. These SPOKES provide corridors into the Hillside-Quadra, Fernwood, Oaklands, North Jubilee Vic West and Fairfield neighbourhoods.

The implementation of this phase would require further financial resources, which could include applying for additional federal and provincial funding through a variety of programs.

CORRIDOR

EXTENT

LENGTH (KM)

PROJECT COST (M)

Graham Street/ Fifth Street

Kings Road to Tolmie Avenue

1.4

Haultain Street

Cook Street to Richmond Road

1.7

$1.0

Richardson Street

Cook Street to Richmond Street

1.9

$0.6

Off-Shelbourne

Begbie Street to Shelbourne Street

2.4

$1.1

Pandora Avenue

Cook Street to Johnson Street

0.8

$1.3

Harbour Road

Johnson Street Bridge to Galloping Goose Regional Trail

0.5

$0.6

PHASE COST (M)

$0.9

$5.5

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PHASE 4 | COMPLETING THE NETWORK

This phase is 8 km of connected AAA cycling facilities that builds the remaining network to completion. There are a couple of challenging corridor segments, specifically Oak Bay Ave Village and Cook Street Village, that will require further public consultation and design considerations to ensure the cycling facilities meet the local community needs, as well as City-wide goals. The implementation of this phase would require further financial resources, which could include applying for additional federal and provincial funding through a variety of programs.

CORRIDOR

EXTENT

LENGTH (KM)

PROJECT COST (M)

Pandora Avenue/ Oak Bay Avenue

Begbie Street to Foul Bay Road

1.5

$2.4

Cook Street

Pakington Street to Dallas Road

1.1

$1.5

Fort Street

Cook Street to Oak Bay Avenue

1.3

$1.8

Government Street / Belleville Street

Government Street to Erie Street

1.7

$2.2

Government Street

Pandora Avenue to Wharf Street

0.6

$0.7

Gorge Road

Government Street to Harriet Road

1.8

$2.5

PHASE COST (M)

$11.1

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INSERT MAP

8.1 INTERIM DESIGN STRATEGIES Communities that have implemented AAA bicycle facilities often face significant technical, political, and financial challenges. When implementing AAA bicycle networks, communities typically face a dilemma: On the one hand, some stakeholders may be skeptical of the potential for cycling to serve a higher percentage of trips and may be more concerned about the impacts that such initiatives may have on traffic congestion, parking, and automobile access to businesses and residences.

On the other hand, a cycling network is unlikely to attract a significant number of users unless it is convenient to access, provides links to a variety of destinations and is consistently comfortable.

To add to these conflicting issues, many communities also have limited funding availability lengthy construction schedules, and face the prospect of significant impacts to traffic operations when undertaking street reconstruction. Many communities are thus often challenged in their efforts to establish robust AAA cycling networks in a timely and cost-effective manner. As a result, interim design strategies can be developed to offer the opportunity to balance these interests.

Interim design strategies offer tools and tactics to achieve rapid implementation of a robust bikeway network in a manner that respects and accommodates those who may have concerns about the proposed network.

A number of jurisdictions throughout North America have employed interim designs using low-cost materials that can be installed and removed quickly with minimal disruption to existing infrastructure.

More importantly, successful interim design strategies also involve agreed measures of success, ongoing monitoring and a commitment to adjust, change or relocate a facility if it is not meeting the needs of the community.

This approach permits faster project delivery and more flexible and responsive design. It allows those who are skeptical, to support a project, with the understanding that there will be opportunities to assess the functionality of a project before going into construction.

BENEFITS OF INTERIM DESIGN OPTIONS There are a number of benefits that arise from use of interim design strategies (adapted from the US Federal Highway Adminsitration Separated Bike Lane Planning and Design Guide https://www. fhwa.dot.gov/environment/bicycle_pedestrian/publications/ separated_bikelane_pdg/page00.cfm), including, but not limited to: The opportunity to adjust the bikeway design in response to observed behaviour; Public assurance that a bikeway project is not being forced upon them, and offering the potential for transparency and scrutiny; Non-permanent installations can be implemented more quickly, reducing disruption to roadway operations and adjacent homeowners and businesses; Interim designs allow a low-risk trial run for bikeway installation without significant financial commitment, so if a facility fails or is not accepted, the level of investment lost is relatively minimal; and Generally, implementation processes under interim designs will be more streamlined than under more formalized capital construction processes, thus allowing faster implementation.

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INTERIM DESIGN OPTIONS There is a range of options for separating bike lanes from motor vehicle traffic, as illustrated in Appendix G and listed in the table below. Each of these options involves the use of lower cost materials than a cast in place, raised curb, and offer varying degrees of influence on cyclist perceived safety and comfort.

PAINTED BUFFER & PARKED CARS

CONCRETE PLANTERS

DELINEATORS

PLASTIC PLANTERS

RUBBER CURB

PLASTIC CURB WITH ARMADILLOS DELINEATORS

PRECAST CURBS

PLASTIC CONCRETE JERSEY JERSEY BARRIER BARRIER

Relative Cost Low

Low

High with High with routine routine maintenance maintenance

Low

Low

Low

Moderate

Low

Moderate

Low/ Moderate

Moderate

High

High

Relative Safety/Comfort Low

Moderate

Moderate/ High

Moderate/ High

Low/ Low/ Moderate Moderate

Many of these materials can also be adapted to provide traffic calming on local street bikeways. When considering which option to select, one should also consider factors such as durability, maintenance requirements, impacts on storm water, aesthetics, construction impacts and width requirements.

MONITORING AND ADAPTATION There are a variety of potential measures that can be used to evaluate the performance of a cycling facility. The measures that are used to assess each facility will vary based on the neighbourhoods and land uses served, the roadway and facility type, and upon the interests of those affected. Ideally the criteria and data used to assess performance of an interim design should be objective, readily available, and easy to capture and measure both prior to and following implementation.

136 #BIKETORIA Final Report

As an example, Figure X provides a list of performance measures and targets that Calgary used to assess performance before and after the introduction of cycle tracks on various roadways throughout downtown Calgary. The list includes the following performance measures that were benchmarked in advance of the pilot and which will be assessed again in 2016: SATISFACTION: the number of people satisfied with a pilot cycle track SAFETY: collision rates along the length of the facility WALKING, CYCLING AND AUTO IMPACTS: bicycle volumes, peak period automobile travel time and unlawful bike riding including sidewalk and wrong way riding ECONOMIC VITALITY: retail customer counts and expenditure assessments DEMOGRAPHICS: gender and age of cyclists.

THEME Satisfaction Safety

Walking, cycling and auto impacts

Economic vitality

PERFORMANCE MEASURES

UNIT OF MEASURE

MEASURED IN ADVANCE?

TARGET BY FALL 2016

MEASUREMENT METHOD

Percent satisfied with Pilot Cycle Track

%

Yes

% satisfaction by Telephone survey or mode. Same or higher in person interview

Collision rate

# of crashes per 100,000 km travelled on the route

Yes

10% reduction

ICBC collision reports

Bicycle volumes

Number of bicycles

Yes

At least 50% increase

Automated counter and video camera

Peak period travel time automobile

Minutes and seconds

Yes

Increase ≤ 20%

GPS and stopwatch trials

Unlawful bicycle riding (sidewalk and wrong way riding)

# and % of bikes riding unlawfully

Yes

Unlawful riding ≤ 2%

Human observation and video camera

Retail customer count and survey

# of visits and $ spent

Yes

Any increase

Pedestrian count and customer intercept survey

# of customers and revenue per day

Average daily revenue and customer numbers

Yes

Any increase

Customer count and interviews with merchants

Gender

# and % of male and female riders

Yes

Increase in female cyclists

Human observation and video camera

Children and Seniors

# and % of riders over 65 and under 14

Yes

Increase in # and % of riders under 14 and over 65.

Human observation and video camera

Demographics

The City should define monitoring criteria before going forward with implementation of the AAA Cycling Network to ensure that is able to monitor and track changes over time.

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8.2 FUNDING SOURCES This is not intended to be an exhaustive list, but provides guidance regarding objective measures that can suggest whether the pilot is successful and what changes might be needed to mitigate challenges.

Any such criteria and targets should be agreed with the community and measured before and after implementation.

As mentioned earlier, the City of Victoria has already committed $7.75 million of Gas Tax funding towards cycling infrastructure between 2015 and 2020. The first phase of the #Biketoria project can be completed within this funding envelope.

If Council approves the construction of further phases of the project, the City should consider the following sources of funding: Leveraging internal infrastructure projects;

LEVERAGE INTERNAL INFRASTRUCTURE PROJECTS As part of the #Biketoria project, opportunities have been identified where other infrastructure projects, including road repaving, signal upgrades, sidewalk implementation, can be used to also build components of the #Biketoria network. The City should seek all opportunities to integrate recommendations of this report in conjunction with these other projects to maximize and make the best use of City resources. Examples of opportunities of shared benefit projects are highlighted in the table below.

There are also opportunities to partner with developers to incorporate new or enhanced cycling facilities into the street improvements required with the development.

Allocated Gas Tax funding; and External funding.

In addition, as these cycling facilities are part of the City’s transportation budget and a benefit to all road users and the city as a whole, the City may also examine the use of property tax revenue to fund this priority project.

CAPITAL PLAN INFRASTRUCTURE PROJECT

ALIGNMENT WITH #BIKETORIA NETWORK

Sidewalk expansion on Belleville Street from Menzies to Oswegos

Harbour Edge corridor

Installation of protected bicycle lanes

Repaving of Cook Street between Pandora Avenue and Caledonia Avenue

Cook Street corridor through North Park Village

Installation of raised protected bicycle lanes

Sidewalk implementation on Pembroke Street from Belmont Street to Forbes Street

Off-Shelbourne corridor

Installation of traffic calming as part of the Neighbourhood Bikeway

Potential sewer main installation on Cook Street with regional sewer treatment facility

Cook Street corridor with protected bicycle lanes

Installation of protected bicycle lanes

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OPPORTUNITY

GAS TAX FUNDING

GREEN MUNICIPAL FUNDS. The Federation of Canadian Municipalities manages the Green Municipal Fund, with a total allocation of $550 million. This fund is intended to support municipal government efforts to reduce pollution, reduce greenhouse gas emissions and improve quality of life. The expectation is that knowledge and experience gained in best practices and innovative environmental projects will be applied to national infrastructure projects.

EXTERNAL FUNDING

CARBON TAX REBATE. Each municipality that has signed the Climate Action Charter received an annual rebased based on completion of the CARIP form. The City of Victoria could choose to direct this funding towards sustainable transportation projects, such as funding bicycle facilities.

The City receives Gas Tax funding on an annual basis. This is permanent and predictable funding for municipalities to build and revitalize local public infrastructure. The City of Victoria receives approximately $3 million each year, which could be allocated towards completing the #Biketoria network.

In addition to maximizing the use of existing funding, the City should leverage all other potential sources of funding that may be available over the next three years. Potential external funding sources that the City could apply for includes: PROVINCIAL PROGRAMS AND INITIATIVES. The Provincial Government administers the BikeBC program, which promotes new, safe and high quality cycling infrastructure through cost-sharing with local governments. Some possible projects include new bicycle trails and bicycle lanes, improvements to existing cycling infrastructure, and providing for bicycle lockers and other equipment that makes cycling a safer and more convenient option for travellers. The BikeBC program provides funding for infrastructure which forms part of a bicycle network plan adopted by a BC local government.

ICBC provides funding for road improvements, including pedestrian and bicycle facilities, particularly where these have the potential to reduce crashes, improve safety, and reduce claims costs to ICBC. Funding is available through ICBC’s Road Improvement Program.

Funding for cycling infrastructure projects may also be available through the New Building Canada Fund — Small Communities Fund.

The provincial and the federal governments will each allocate funding to support infrastructure projects in communities with a population of less than 100,000 people. This 10-year funding program runs from 2014 to 2024.

FEDERAL FUNDING. There are several programs that provide funding for environmental and local transportation infrastructure projects in municipalities across Canada. Typically, the federal government contributes one-third of the cost of municipal infrastructure projects. Provincial and municipal governments contribute the remaining funds, and in some instances, there may be private sector investment as well.

139

8.3 CAPITAL IMPLEMENTATION In order to proceed to building a minimum grid of AAA cycling facilities, detailed design of the approved corridors must be completed. It is recommended that this design be undertaken with additional public consultation, particularly of the adjacent and affected businesses and residents along the priority corridors.

During this phase of this project, a small number of areas of concern were noted where additional work must be undertaken to mitigate impacts related to removal of vehicle parking and vehicle operations. In those cases, particularly in the neighbourhood villages, the City could consider undertaking the detailed design process while completing the neighbourhood planning process. This would allow greater targeted public engagement and alignment between neighbourhood aspirations, land use planning and urban form and consideration of all modes of transportation. This approach follows Council’s Strategic Plan to undertake neighbourhood level planning for complete streets. Though this approach should be considered, the timing of the implementation of the #Biketoria network and the neighbourhood planning process may not be concurrent in all cases and other arrangements for in-depth neighbourhood engagement should be made.

Based on the direction of Council and further planning processes, the detailed design process for each of these corridors will be undertaken.

This more detailed process includes topographic field survey, 60 and 90% detailed design, considerations for electric, stormwater, utility and structure design components, and preparation for tendering of the project. The City can then undertake construction of the facilities.

140 #BIKETORIA Final Report

8.4 IMPLEMENTATION CONSIDERATIONS This project is focused on the capital considerations of building a minimum grid of AAA cycling facilities in the City by 2018. For the successful implementation of this network, it is recommended that the City consider other components of implementation related to policy, engagement and resource.

This section provides implementation recommendations related to:

considerations

and

Further Community Engagement; Human Resources; Cycling Policy; Education and Encouragement; Wayfinding; and End of Trip Facilities.

FURTHER COMMUNITY ENGAGEMENT

Ongoing engagement: The City should continue to use the #Biketoria brand to maintain consistent messaging and awareness of the project. Additional pop-up engagement labs could be hosted on each route to solicit corridor-specific feedback. Online surveys should also be used to track community support and concerns for the project over time. Information and feedback can continue to be distributed and collected on Twitter, Facebook, Instagram, and the City of Victoria’s website.

In-depth engagement: It is important to solicit feedback from businesses and residents located directly on the proposed corridors, and provide transparent information on an ongoing basis.

We recommend conducting in-person surveys with each business and residence along corridors where significant concerns have been expressed. Flyer-drops and mail inserts should also be used to build awareness during the construction and implementation phases.

Maintain an advisory committee: The #Biketoria Technical Advisory Committee provided valuable and meaningful feedback from diverse stakeholders throughout the AAA network planning phase.

The Committee should continue to convene on a regular basis, or be replaced by a general Bicycle Advisory Committee to provide consistency and accountability to the wide variety of stakeholder interests they represent. This aligns with Council’s Strategic Plan intention to create an Active Transportation Advisory Committee.

HUMAN RESOURCES

The capital implementation of the minimum grid of cycling facilities will require additional human resources. It is recommended that a dedicated project manager be identified, as well as individuals who can specialize in this area. This project provides a great opportunity to further develop the cycling planning and design skills and talents of City of Victoria staff through professional development and other initiatives. Depending on the capital implementation option supported by Council, current staff may be re-assigned to this project, and in addition, new staff may be hired to contribute to successful implementation.

CYCLING POLICIES

The City of Victoria’s current Bicycle Master Plan was completed in 1995. It is recommended that this document is updated based on the consultation that occurred in 2014, along with the results of the #Biketoria process. This document will provide valuable direction and support decision making related to cycling in the City.

The completion of the Bicycle Master Plan can also inform bylaw and policy updates that will further integrate the consideration for cycling into City initiatives.

141

EDUCATION AND ENCOURAGEMENT

The implementation of new cycling facilities will encourage more people to choose cycling as a mode of transportation. For those who are new to cycling, education will also be an important component of implementation. It is recommended the City partner with the Capital Regional District and cycling organizations, such as Bike to Work Week to provide children and adult cycling education opportunities.

Another component of education is providing documents and materials that offer up to date information on local cycling networks. By spreading information and awareness about cycling in the community, the City can use cost-effective education initiatives to enable people to feel more safe and comfortable using active modes to get around, while encouraging increased use of cycling facilities. There are a number of education and awareness programs and initiatives that the City can develop. To do so, the City should continue to identify opportunities to collaborate with appropriate agencies and organizations to promote education and awareness around cycling.

The 2018 AAA cycling network is in close proximity to many schools across the City. This provides an opportunity for the City to partner with these schools and the Capital Regional District to deliver a ‘Safe Routes to School’ program. These programs include travel modes surveys, safe routes to school mapping, cycling education and ongoing encouragement for students to cycle to school.

Finally, encouragement of cycling is important in highlighting cycling as a travel choice to people who have not cycled before. Examples of encouragement programs include advertising campaigns that present diverse people who cycle, incentive programs to cycle to shop at local businesses or to community facilities, and celebrations such as Bike to Work Week and associated activities.

142 #BIKETORIA Final Report

WAYFINDING

Wayfinding signage for cycling can be implemented with the development of the 2018 AAA cycling network. The City should apply to Capital Regional District’s Cycling Wayfinding Guidelines in providing signage that directs people to local and regional destinations that can be reached by bicycle. Wayfinding signage can be used in combination with clear and accessible cycling facility maps.

END OF TRIP FACILITIES

Bicycle facilities include both the on-road infrastructure and endof-trip facilities. The most important end-of-trip facility is a secure place to lock up a bicycle. The City of Victoria has completed a Bicycle Parking Plan that identified opportunities to expand and enhance bicycle parking. The City should provide short-term street or sidewalk bike parking, along with more secure long term parking options where people could feel comfortable locking up their bikes for longer periods of time or overnight. Longer term secure bicycle parking facilities can be provided in conjunction with a “bike kitchen” (bike fixing tools).

CONCLUSION

For further success, it is recommended that the implementation of an All Ages and Abilities cycling network be combined with further community engagement, policy, education, and complementary infrastructure. These initiatives will encourage more people to use the cycling facilities throughout the city.

9.0 CONCLUSION

#Biketoria is a bold, ambitious project to help make Victoria become one of the world’s best small cities for cycling. Through this study, the City is looking to rapidly implement a city-wide, minimum grid of bicycle facilities that will be comfortable for people of all ages and abilities. This recommended 2018 AAA Cycling Network includes 8 priority corridors that will establish a city-wide minimum grid of All Ages and Abilities bicycle facilities that connect residents to destinations across the City.

To implement this network, the City of Victoria has already committed $7.75 million of Gas Tax funding towards cycling infrastructure between 2015 and 2020. In addition the City receives $3 million per year in additional Gas Tax funding that can be used for green infrastructure projects. A number of phasing options have been developed to provide the City with options on how to move forward with the implementation of the proposed network.

It is recognized that implementation of the 2018 AAA Cycling Network may result in several real and perceived impacts related to parking, transit, street trees, vehicle operations, pedestrians and accessibility, and loading, among many others. Through this study, preliminary concepts have been identified for each corridor to demonstrate what is possible. However, this study is only the first step in implementing the 2018 AAA Cycling Network. In order to proceed with building this minimum grid of All Ages and Abilities cycling facilities, detailed design of the approved corridors must be completed.

144 #BIKETORIA Final Report

This next phase of design should be undertaken with additional public consultation, particularly of the adjacent and affected business and residents along the priority corridors. Through this next phase of detailed design and public consultation, further consideration can be given to working with stakeholders to mitigate issues.

By implementing this network by 2018, Victoria has a unique opportunity to change the way residents and visitors travel through the City. This opportunity will also have significant benefits on community engagement, the environment, and local economic development. By building a complete All Ages and Abilities cycling network that connects major destinations throughout the City, Victoria can be one of the world’s most active, healthy, and happy small cities.