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Home My WebLink AboutActive Transportation Plan Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN FINAL REPORT AUGUST 2008 Walking and Cycling Towards Healthy, Connected Communities rwilf@ EJ Stantec In Associate with Catherine O'Brien and Vibe Creative Group 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN TABLE OF CONTENTS A C KN OWL E DG E MEN TS...................................................................................................... ........... VI EXE C U TIVE SUM MARy................................................................................................................ E.2 Stu dy Ap P roa c h and Co n s u Itati 0 n . .... ... . .... ..... ... . .... ... . .... ..... ... . .... ... . .... ... .. ... . .... ... . .... ... . .... . .... ... . ... .... ... . .... ... E. 2 Study Vision........................................................................................................................ ........................... E.3 Rationale for Improving Conditions for Active Transportation ................................................................. E.3 P I a n E I e men ts .............................................................................................................................. . . . . . . . . . . . . . . . . .. E. 4 Implementation and Monitoring.... ........ ........ ..... ........ ........ ........ ........ ..... ........ ........ ........ ........ ..... ...... ........ E.1 0 Fin a n cia I Imp I i ca t ion s .............................................................................................................................. . .. E .11 M 0 vi n g F 0 rwa rd Tog et her. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .. E .11 1. INTRODUCTION ...................................................................................................................... 1 1.1 Study Overview and Process ............................................................................................................... 1 1 . 2 Com m u n i ty Vis ion .............................................................................................................................. . .. 3 1.3 Public and Stakeholder Consultation ..................................................................................................4 2. BEN EFITS OF ACTIVE TRANSPORTATION .................................................................. ....... 1 2.1 H ea Ithy C itize n s............................................................................................................................. ........ 1 2.2 Quality of life and Happiness .............................................................................................................. 2 2 . 3 A c c e s sib i I i ty for A II .............................................................................................................................. . 3 2.4 Promotion of Sustainable and liveable Communities....................................................................... 3 2.5 Reduced Emissions and Energy Use .................................................................................................. 3 2.6 Red u ce d T ra vel Co s ts . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .. 4 2.7 Red u ced I nfrastru ctu re Costs.............................................................................................................. 4 2.8 In c reased To u ri s m P ote nti a I ................................................................................................................ 5 3. EXISTING CONDITIONS AND FUTURE OPPORTUNITIES .................................................. 6 3.1 S oc i 0- E co nom i c Con text. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .. 6 August200B Pagei 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN 3.2 Core Com m u nit i e s .............................................................................................................................. .. 9 3.3 Current Transportation Behaviour. ..... .... .... .... .... ..... .... .... .... ..... .... .... .... ..... .... .... .... .... ..... .... .... .... .... ... 19 3.4 P e d es tri a n s .............................................................................................................................. . . . . . . . . . . .. 20 3.5 Cycl ists.......................................................................................................................... ....................... 25 3.6 Trails and Recreational Facilities.......... ........ ........ ........ ........ ........ ....... ...... ........ ........ ........ ........ ..... ... 30 4. ENHANCING CONDITIONS FOR ACTIVE TRANSPORTATION .........................................32 4.1 Pedestrian Planning, Design and Maintenance ................................................................................ 32 4.2 Bikeway Planning, Design and Maintenance .................................................................................... 49 4.3 AT-supportive Site Design Guidance ................................................................................................57 4.4 Education and Awareness Strategy .................................................................................................. 61 4.5 Economic Development and Tourism Strategy................................................................................ 62 5. RECOMMENDED ACTIVE TRANSPORTATION NETWORK .............................................. 65 5. 1 The N e tw 0 r k P I ann i n g Pro c e s s . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .. 65 5 . 2 The N e tw 0 r k Con c e pt. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .. 67 5.3 Recommended Core Com m un ities Network..................................................................................... 69 5.4 Trai Is Strategy..................................................................................................................... ................ 84 6. IMP L E MEN TAT ION P LA N . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 88 6 .1 AT N e tw 0 r k P r i 0 r i tie s .... . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .. 8 8 6.2 AT Network Implementation ............................................................................................................... 93 6.3 Pol icy Imp I erne n ta t ion ...................................................................................................................... 117 APPENDICES A SUMMARY OF EXISTING POLICIES AND PROGRAMS B REVIEW OF PRACTICES FROM OTHER JURISDICTIONS SUMMARY OF PUBLIC CONSULTATION ACTIVITIES (SEPARATE DOCUMENT) August 2008 Page ii 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN LIST OF EXHIBITS Exhibit ES.1: CBRM Active Transportation Network ..........................................................................6 Exhibit ES.2: CBRM Active Transportation Network-Recreational and Scenic Routes ...................7 Exhibit ES.3: CBRM Active Transportation Network-Proposed Signature Projects.........................9 Exhibit ES.4: Potential Partners for the Planning, Design, Operation and Maintenance of the Signature Projects..................................................................................................... 12 Exhibit 2.1: CBRM Physical Activity Levels........................................................................................ 2 Exhibit 3.1 : Core Communities............................................................................................................ 7 Exhibit 3.2: CBRM Population, 1956-2006 .................................. ....................................................... 8 Exhibit 3.3: CBRM Age-Sex Population Forecast, 2006 & 2021 ........................................................8 Exhibit 3.4: Existing Conditions-Sydney......................................................................................... 11 Exhibit 3.5: Existing Conditions-Greater Glace Bay....................................................................... 13 Exhibit 3.6: Existing Conditions-New Waterford .............................................................................15 Exhibit 3.7: Existing Conditions-North Sydney ...............................................................................17 Exhibit 3.8: Existing Conditions-Sydney Mines ..............................................................................18 Exhibit 3.9: Daily Commute Mode Split.............................................................................................19 Exhibit 3.10: Commuting Distance.................................................................................................... 20 Exhibit 3.11: Types of Pedestrian Facilities ......................................................................................22 Exh i bit 3.12 : Factors Influencing Wal k Mode.................................................................................... 25 Exhibit 3.13: Reasons for Walking or Bicycling.................................................................................26 Exhibit 3.14: Examples of On-road Bicycle Facilities........................................................................27 Exhibit 3.15: Examples of Off-road (Mutli-use) Bicycle Facilities......................................................29 Exh i bit 3.16 : Factors Influencing Cycli ng Use................................................................................... 30 Exhibit 4.1: In-laid durable pavement marking, ladder pattern .........................................................33 Exhibit 4.2: Channelized right-turn lane designed for pedestrians ...................................................34 Exhibit 4.3: Pedestrian's chances of death if hit by a motor vehicle based on the speed of the vehicle....................................................................................................................... 36 Exhibit 4.4: Sidewalk Corridor Zones................................................................................................ 40 Exhibit 4.5: Sidewalks and Street Furniture ......................................................................................41 Exhibit 4.6: Sidewalk Encroachments............................................................................................... 41 Exhibit 4.7: Curb Ramps................................................................................................................... 43 Exhibit 4.8: Detectable Warnings...................................................................................................... 44 Exhibit 4.9: Population, Population Density and Snowfall for Municipalities Similar to CBRM.........48 Exhibit 4.10: Examples of Bikeway Signage .....................................................................................53 Exhibit 4.11: Typical vs. Model Site Layout ......................................................................................58 Exhibit 4.12: Contrasting Examples of Site Layout ........................................ ................................... 60 August 2008 Page iii 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN Exhibit 5.1: Network Hierarchy and Facility Types ...........................................................................68 Exhibit 5.2: CBRM Active Transportation Plan Network-Region.................................................... 70 Exhibit 5.3: CBRM Active Transportation Plan Network-Glace Bay............................................... 71 Exhibit 5.4: CBRM Active Transportation Plan Network-New Waterford .......................................72 Exhibit 5.5: CBRM Active Transportation Plan Network-North Sydney and Sydney Mines........... 73 Exhibit 5.6: CBRM Active Transportation Plan Network-Sydney................................................... 74 Exhibit 5.7: Recreational and Scenic Routes ..................................................... ............................... 75 Exh i bit 5.8: S i g natu re Projects.......................................................................................................... 82 Exhibit 6.1: Unit Costs of Construction ............................................................................................. 91 Exhibit 6.2: Network Implementation Strategy-Short Term Bicycle Facilities for the Region .........94 Exhibit 6.2: Network Implementation Strategy-Short Term Bicycle Facilities for the Region .........95 Exhibit 6.3: Network Implementation Strategy-Long Term Bicycle Facilities for the Region .........96 Exhibit 6.4: Network Implementation Strategy-Short Term Pedestrian Facilities for Greater Glace Bay.................................................................................................................. 97 Exhibit 6.5: Network Implementation Strategy-Long Term Pedestrian Facilities for Greater Glace Bay.................................................................................................................. 98 Exhibit 6.6: Network Implementation Strategy-Short Term Bicycle Facilities for Greater Glace Bay.................................................................................................................. 99 Exhibit 6.7: Network Implementation Strategy-Long Term Bicycle Facilities for Greater Glace Bay................................................................................................................ 100 Exhibit 6.8: Network Implementation Strategy-Short Term Pedestrian Facilities for New Waterford ................................................................................................................ 101 Exhibit 6.9: Network Implementation Strategy-Long Term Pedestrian Facilities for New Waterford ................................................................................................................ 102 Exhibit 6.10: Network Implementation Strategy-Short Term Bicycle Facilities for New Waterford ................................................................................................................ 103 Exhibit 6.11: Network Implementation Strategy-Long Term Bicycle Facilities for New Waterford ................................................................................................................ 104 Exhibit 6.12: Network Implementation Strategy-Short Term Pedestrian Facilities for North Side......................................................................................................................... 105 Exhibit 6.13: Network Implementation Strategy-Long Term Pedestrian Facilities for North Side......................................................................................................................... 106 Exhibit 6.14: Network Implementation Strategy-Short Term Bicycle Facilities for North Side .....107 Exhibit 6.15: Network Implementation Strategy-Long Term Bicycle Facilities for North Side ......1 08 Exhibit 6.16 Network Implementation Strategy-Short Term Pedestrian Facilities for Sydney .....109 Exhibit 6.17 Network Implementation Strategy-Long Term Pedestrian Facilities for Sydney ......110 Exhibit 6.18: Network Implementation Strategy-Short Term Bicycle Facilities for Sydney ..........111 Exhibit 6.19: Network Implementation Strategy-Long Term Bicycle Facilities for Sydney ...........112 Exhibit 6.20: AT Network Probable Cost of Construction by Phase ...............................................113 August 2008 Page iv 181 GROUP FINAL REPORT August 2008 Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN Exhibit 6.21: AT Network Cost Summary by Signature Project and Phase....................................113 Exhibit 6.22: AT Network Cost Summary by Facility Type and Phase ...........................................114 Exhibit 6.23: Potential Partners for the Planning, Design, Operation and Maintenance of the Signature Projects................................................................................................... 116 Exhibit 6.24: Implementation Schedule for Recommended Policies, Practices and Programs.....117 Page v 181 GROUP FINAL REPORT ACKNOWLEDGEMENTS Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN The Active Transportation Plan was guided by the CBRM Active Transportation Committee, a partnership of the Cape Breton Regional Municipality, Public Health Services (a Shared Service of the Cape Breton District Health Authority and the Guysborough Antigonish Strait Health Authority), Province of Nova Scotia, the Cape Breton Victoria District School Board, Membertou First Nation, ACAP Cape Breton, Velo Cape Breton and the Sydney and Area Chamber of Commerce and Cape Breton University. Many individuals contributed to the development of this plan and their time and efforts are greatly appreciated by CBRM and the consulting team. CBRM PROJECT LEADS Rick McCready, Planner (CBRM Project Manager) Heather MacDougall, Recreation Programmer Malcolm Roach, Engineering Technologist ACTIVE TRANSPORTATION PLAN STEERING COMMITTEE Ray Paruch, Chair (District 8 Councillor) Susan McCormick, Public Health Services, Nova Scotia Irene Carroll, Sydney and Area Chamber of Commerce Yolande Levert, Cape Breton District Health Authority Stephanie Johnstone-Laurette, Atlantic Coastal Action Program Pamela Morrison, CBRM Planning Fred Brooks, CBRM Recreation Yann Artur, Cape Breton University Coleen Chisholm, NS Department of Health Promotion & Protection CONSULTING TEAM Brian Hollingworth, IBI Group Norma Moores, IBI Group Dylan Passmore, IBI Group Catherine O'Brien, Cape Breton University August 2008 Andre Gallant, Velo Cape Breton Gerard Jessome, NS Department of Transportation and Infrastructure Renewal Malcolm Gillis, CBRM Planning Colleen MacMullin, Cape Breton-Victoria Regional School Board Cst. Geoff MacLeod, CBRM Police Services Sgt. Gerald Marks, CBRM Police Services Wayne MacDonald, CBRM Manager of Engineering Services Mark Macintyre, CBRM Engineering Ike Paul, Membertou Bernie Steele, CBRM Transit Jay Cranstone, Stantec Melissa Cameron, Stantec Tracey Boutilier, Vibe Creative Page vi 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN EXECUTIVE SUMMARY There is growing awareness that our current auto-dependent lifestyles are not sustainable, either in terms of impacts on the environment, or in terms of impacts on our health. While many solutions to this problem have been studied, the most obvious solution is to significantly increase reliance on active transportation modes. Active transportation essentially refers to any form of human-powered transportation - walking, cycling, wheeling, in-line skating, skateboarding, ice skating or canoeing/rowing. Active transportation modes produce zero pollution and are virtually free to those who use them. Research is also starting to show that people who commute using active transportation modes are happier and less stressed than those that do not. In recognition of the many benefits of Active Transportation, Cape Breton Regional Municipality initiated the Active Transportation Plan in fall 2007. A key underlying objective of this plan is to improve the quality of life and health of residents, by encouraging more people to use Active Transportation. Achieving this objective requires that CBRM ensure safe and attractive conditions for walking, cycling and other non-motorized forms of travel - for ill! of its residents. The creation and adoption of the Active Transportation Plan will allow CBRM to: . Facilitate developing a common pedestrian and cycling vision, along with goals, policies and tools to guide on-going work; . Playa coordinating role to ensure that walking and cycling facilities within and between communities are connected and continuous; . Establish education, enforcement, and promotion programs to enhance the real and perceived safety of walking and cycling and establish non-motorized travel as a viable transportation alternative; . Develop planning and design standards for road facilities that are more conducive to active transportation. The Active Transportation Plan and related networks are inclusive of streets, trails, recreational activities/facilities and natural environment attractions. Study Approach and Consultation The Active Transportation Plan study was divided into three main phases as follows: . Phase 1 - Existing Conditions and Study Vision . Phase 2 - Regional Bicycle and Pedestrian Plan . Phase 3 - Implementation Strategy This report represents the culmination of all three phases. Public and stakeholder consultation was central to the development of this plan and included formal public open houses, focus groups, stakeholder meetings, walk-abouts, working with schools and an on-line survey. August 2008 Page E.2 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN Based on these consultation activities, there appears to be strong support for improving conditions for walking and cycling, with health and safety/accessibility for children and youth rating as the top reasons for doing so. Study Vision With the assistance of the Active Transportation Committee, and based on input from stakeholder consultations, the following was established as a Vision for the AT Plan: The Active Transportation Plan will improve the health of the citizens of CBRM by creating opportunities to connect this "community of communities" through walking, rolling and cycling in a manner that will sustain social, economic and environmental benefits. To achieve this Vision, a walking and cycling environment should be created that: 1. Reaches the entire community, from children to seniors, and the full range of socio- economic circumstances 2. Assists students in walking or cycling to school and other places within their communities 3. Improves access to the community for those with physical or cognitive impairments 4. Prioritizes connecting cycling and walking with transit 5. Considers all modes, including auto mobility, to create "complete" streets 6. Reduces crime and contributes to personal comfort and security 7. Contributes to healthy and active citizens and a healthy work force, reducing the associated risk of chronic disease 8. Will allow a shift in public funding from health to other initiatives once walking and cycling are again realized as normal and routine activities for getting around the CBRM 9. Respects the cultural identity of the individual communities within the CBRM A central goal of the Plan is to get more people to walk, run, or roll as part of their daily routine, and for some, enable them to make Active Transportation their primary travel mode. Rationale for Improving Conditions for Active Transportation Many current issues are tied to improving conditions for walking and cycling: . An aging population . Retention of youth . Growing concerns about climate change . Shift from traditional economies to emerging economies such as tourism . Inability to keep up with road rehabilitation needs There are also opportunities that re-enforce the need to consider prospects for active transportation: August 2008 Page E.3 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN . Health organizations are recognizing the need to move from "treatment approach" to "prevention" approach . Provincial and Federal Government commitments to the environment and sustainable development initiatives . Sydney Tar Ponds rehabilitation . DEVCO Legacy project Finally, based on current projections, CBRM's population is not expected to grow significantly and the average age of residents will increase. As a result, CBRM can expect a reduced need for road capacity to accommodate commuter travel demands. Worries about congestion may soon disappear, creating a more conducive environment for concepts such as reducing traffic lanes in favour of bike lanes. Plan Elements The Active Transportation proposed for CBRM is not just about improving infrastructure, but rather a comprehensive set of recommendations aimed at changing policies, practices and programs to better accommodate the needs of non-motorized transportation modes. In addition to recommending a network plan, the recommended plan includes recommendations on: . Design standards for pedestrian and bicycle facilities; . Improving the design of new development to better accommodate AT users; . The recognition of the benefits of promoting active transportation on tourism and economic development; and, . Supporting policies and programs to help change behaviour and to ensure that the need for AT becomes engrained in all of CBRM's planning activities. ACTIVE TRANSPORTATION NETWORKS Exhibit ES.1 illustrates the recommended active transportation network for CBRM. The Active Transportation pedestrian and bikeway network is composed of Intercommunity and Intracommunity routes. These are complemented by Recreational/Scenic Routes as shown on Exhibit ES.2. . Intercommunity Routes-these form the skeleton of the network offering opportunities to move throughout CBRM; between communities/urban centres, and on direct routes through communities/urban centres. In the greater context (regional/provincial context) intercommunity routes will ultimately form the connections to neighbouring municipalities, and regional/provincial/national trail systems. The Intercommunity system is typically located on or along higher order roads, and linear off road corridors such as abandoned railway lines. . Intracommunity Routes-these provide links to the Intercommunity network and connect local/neighbourhood destinations and points of interest. The Intracommunity network includes Primary routes and Secondary routes. August 2008 Page E.4 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN . Recreational/Scenic Routes-are complementary to the Intercommunity and Intracommunity route network. It is anticipated that these Recreational/Scenic routes will not be used frequently for Active Transportation, however they are an important aspect of the "big picture" for cyclist and pedestrian travel in CBRM as the use of these routes support other important initiatives related to healthy lifestyles, tourism and economic development. Although included in the CBRM AT Plan, these routes require further study through cycling and trail strategies. . Sidewalks and the Pedestrian Network-a connected sidewalk network is extremely important to pedestrian travel. Sidewalks already exist along many of the streets in urban centres and efforts should be made to eliminate gaps in the urban sidewalk network regardless of whether or not they are part of the key pedestrian network illustrated in Exhibit ES.1. Urban Intracommunity and Intercommunity pedestrian routes that are illustrated in the pedestrian network should receive priority winter maintenance. Furthermore, priority should be given to high quality, continuous sidewalks along these designated routes. When determining appropriate facility types for each segment of the AT route network, each route must be assessed on an individual basis; however, the following table indicates the facility types that were generally considered for pedestrian and bikeway routes according to network hierarchy. NETWORK HIERARCHY Intercommunity Intracommunity- Primary Routes Intracommunity- Secondary Routes Recreational! Scenic POTENTIAL TYPICAL FACILITY TYPES PEDESTRIAN NETWORK I BIKEWAY NETWORK Multi-use pathway Sidewalk Bike Lane Paved Shoulder Wide Shared-use or Wide Curb Lane Multi-use Pathway Bike Lane Paved Shoulder Wide Shared Use or Wide Curb Lane Signed Route Bicycle Priority Street/Bikeway Boulevard Wide Shared-use Lane Signed Route Bicycle Priority Street/Bikeway Boulevard Paved Shoulder Signed Route Multi-use Pathway Sidewalk Multi-use Pathway Sidewalk Multi-use pathway Low volume road Multi-use pathway Sidewalk Low Volume Road Paved or Granular Shoulder The location of recommended network routes may be subject to change through more detailed technical studies and community consultation, where warranted, prior to the implementation of individual routes. At the same time however, the extensive community effort that established the overall directions of this plan and the recommended network must be respected. Therefore, specific changes to the recommended Active Transportation network should be evaluated in the context of such a decision's impact upon the overall AT Network and accompanying vision for Active Transportation in CBRM. August 2008 Page E.5 J :t:.. ::!:. Q a r\' o " tQ Q ~ " ..... Q " f1) O:J ~ o Q:, m ~ ~ ,( ~7 w ^N :3 \j - ,( '- ~' \ Exhibit ES.l CBRM Active Transportation Plan - Network Region .~_..,~ .. - ....~ fi ~ "'\,w . .. ~~- ~~. IBI t;ROUI' ~ ~ Stantec The location of recommended network routes may be subject to change through more detailed technical studies and community consultation, where warranted, prior to the implementation of individual routes. At the same time however, the extensive community effort that established the overall directions of this plan and the recommended network must be respected. Therefore, specific changes to the recommended Active Transportation network should be evaluated in the context of such a decision's impact upon the overall AT Network and accompanying vision for Active Transportation in CBRM. In Association with Catherine O'Brien and Vibe Creative Group d l' I t" J L.(. ~. /J,::.:! { ., i y!I · J~ :~~~ ' =i:~:~~~~~' I' "~~~ .~ ~ l~ Upper Gra.nd Mira ,. A~ ~ . . . . Trans Canada Trail Scenic Bicycle Routes .. _~ ~ I (identified by Destination Cape Breton - On Road) F L E ~~. -0 E - L I ~.m_~'1 L , - Scenic Bicycle Route .. - 0_ Bras D'Or Scenic Drive CON :1 S ,f I 11I- Fleur-de-Lis Trail ...~ I 2.5 / ~~~~:fO,"' I T' ",00' //1 CO~"~F;~~N TO CABo-T-TRA I .... Gabt;s , 1 I ~ .{ Legend 7 Big Pond Center {Middle Cape IrI / ~ I t ( ,J I, I 1 .1 ~ Community Facilities . . t _ Marconi Trail ..:-~ Hospital :1 b Enon . . ~ ?/)i.. ~ ~~~h ; ~ ,. ~''-../ J' \ BRAS D'OR~S€ENIC DRIVE .t '" - , CONTINUESl~:J1 '\ ;...... t t'- Parks and Open Space . . -t. ... _ Parks and Open Space _ Provincial Parks Intercommunity Routes - Routes connecting one community to another Exhibit ES.2 CBRM Active Transportation Plan - Network Recreational and Scenic Bicycle Routes it;..~.-.~. -... '."1.;... '3~' -? .::;;:~. ; IBI t;ROUI' ~ ~ Stantec The location of recommended network routes may be subject to change through more detailed technical studies and community consultation, where warranted, prior to the implementation of individual routes. At the same time however, the extensive community effort that established the overall directions of this plan and the recommended network must be respected. Therefore, specific changes to the recommended Active Transportation network should be evaluated in the context of such a decision's impact upon the overall AT Network and accompanying vision for Active Transportation in CBRM. In Association with Catherine O'Brien and Vibe Creative Group 7.5 10 Km +~ ~ 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN SIGNATURE PROJECTS During public and stakeholder meetings, several projects emerged as having the potential for strong community backing or significant potential for accelerating the development of the AT network and the goals of the AT Plan. The study team subsequently defined these as "Signature Projects." The identification of Signature Projects is intended to help: . Leverage funding from other levels of government . Engage community interest . Highlight and resolve design challenges . Provide visible actions Exhibit ES.3 illustrates the location of these signature projects. SUPPORTING POLICIES AND PROGRAMS In recognition of the goal of engraining AT into all aspects of community building, several supporting policies and programs are recommended: Build AT Friendly Communities by promoting active transportation friendly land-use planning . Adopt child and youth-friendly land-use policies . Adopt policies on bicycle parking and end-of-trip facilities (i.e. showers and change rooms) . Update criteria on the location, design and accessibility of sidewalks . Integrate transit with AT including bike racks on busses, feasibility of "smart cards", providing express service to key employers Adopt AT Network Policies and Practices, centred on implementing and maintaining the recommended Active Transportation Network . Continue to support a CBRM AT Committee . Support community groups sponsoring a part of the AT network . Develop a Sidewalk Prioritization Program to address existing deficiencies in the sidewalk network . Develop a Regional Trail Strategy for CBRM . Develop a bike route signage strategy in partnership with the ProvinceCreate AT-supportive Practices that address everyday responsibilities of the CBRM and how they are carried out to encourage more cycling and walking . Collaborate with Safe Routes to School programs August 2008 Page E.8 J ~ 3~~ "0 :) 0... """' lO :) ~~~ 30...$: ro n -. :) '< :) Ci ~ ~ :) lO \ )<~ ~\( \ :~~ -\~~ :t:.. g. a r\' o 1"\ tQ Q ~ ~ )l ?~ 1" (. kN " ..... Q " f1) O:J ~ J / ~ ?! Exhibit ES.3 CBRM Active Transportation Plan Proposed Signature Projects ~Il':"~ a..'. I !}tll \.(\. ~. .~ ~; ~ ~ Stantec The location of recommended network routes may be subject to change through more detailed technical studies and community consultation, where warranted, prior to the implementation of individual routes. At the same time however, the extensive community effort that established the overall directions of this plan and the recommended network must be respected. Therefore, specific changes to the recommended Active Transportation network should be evaluated in the context of such a decision's impact upon the overall AT Network and accompanying vision for Active Transportation in CBRM. In Association with Catherine O'Brien and Vibe Creative Group 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN . Routinely consider the needs of pedestrians and cyclists in transportation projects and services, including planning, design, traffic data collection and construction / traffic management . Review and update roadway maintenance practises to better accommodate cycling . Consider changes to sidewalk winter maintenance . Create a reporting system for cyclists and pedestrians to use to report poor roadway / bikeway / sidewalk conditions Develop AT-supportive Programs aimed at shifting travel behaviours and encourage more people to walk, cycle or take transit . Collaborate with other stakeholders in creating an AT map . Collaborate with community partners to develop programs that shift transportation behaviours of CBRM staff and other large employers . Develop a one portal information link on the CBRM's web site for information about active transportation. . Support community events and activities that encourage more walking and cycling . Collaborate on safety, education and enforcement campaigns and programs that focus on collision prevention . Consider introducing a Police on Bikes community policing unit . Consider partnering with community stakeholders to deliver Kids CAN-BIKE programs in schools or summer day camps Implementation and Monitoring The process for implementing the AT Plan and its recommended actions requires continuous effort on the part of CBRM staff, the AT Committee, key stakeholders and the public. The adoption of the AT Plan is the first step in the overall implementation process. Following this, policies, programs and recommendations on infrastructure will be carried through to annual programming exercises including the annual budgeting process wherein investment priorities and timings are established. The planning and design phase for future infrastructure begins once priorities are set. Physical implementation occurs with construction, and continues into the operation and maintenance of the facilities. Monitoring is undertaken to gauge the effectiveness of the policies, programs and infrastructure improvements in achieving the AT Plan goals and objectives. Shifts in underlying assumptions or achievement of objectives signal the need for a review of the basic policy direction, and the process starts again. Meeting the objectives of the AT Plan will be challenging. It requires the dedication of not only funds to construct and maintain the routes and programs, but also human resources to plan and design the routes, seek outside funding, implement policies and programs, monitor progress, and engage stakeholders and the public in supporting it. CBRM staff and the AT Committee are the key August 2008 Page E.10 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN human resources to effectively move forward on the plan implementation. It is recommended that CBRM explicitly define CBRM staff requirements and support the AT Committee during implementation of the AT Plan. A regular review of the AT Plan is proposed every five years, ideally in conjunction with updates to the Municipal Planning Strategy. Financial Implications The net cost of implementing the infrastructure components of the AT plan is dependent on several factors including whether or not the projects can be implemented in conjunction with other projects or as part of on-going road rehabilitation projects, as well as the level of financial support that can be garnered from other levels of government and community partners. In general, it has been assumed that, on average, approximately one-third of the total cost of infrastructure improvements will need to come from CBRM. In addition to identifying signature projects, the AT plan network recommendations were classified into two phases: . Short Term (2009-2014) . Long Term (2014-2029) A summary of opinion of probable construction cost to implement the short-term and long-term phases is presented in the table below. The short term projects work out to an average expenditure of $1 million per year, of which approximately one-third is expected to be funded by CBRM. I PHASE I PROJECT TYPE I PROBABLE COST 2008 DOLLARS --- Short Term ILfugnature Projects IOther Routes Subtotal I L T ILfugnature Projects ong erm I Other Routes Subtotal I I Grand Total $3,830,000 $1,152,000 $4,982,000 $2,594,000 $12,522,000 $15, 116,000 $20,098,000 Moving Forward Together During the course of the Active Transportation Study, it became clear that there are numerous governmental departments, agencies, community groups and stakeholders interested in being part of the implementation of the AT Network, to plan, design, construct, operate and/or maintain the routes, in particular for the Signature Projects. The CBRM department involvement, provincial and federal governments/agencies and potential community partners are identified in Exhibit ES.4 for each Signature Project. August 2008 Page E. 11 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN Exhibit ES.4: Potential Partners for the Planning, Design, Operation and Maintenance of the Signature Projects . Engineering and Public I · Sydney and Area Chamber of George Street Bike Lanes Works Commerce . Planning King's Road Bike Lanes or . Engineering and Public . NS Transportation and . Velo Cape Breton off-road path Works Infrastructure Renewal . ACAP Cape Breton . Planning . ECBC . Recreation . Nova Scotia Lands . Whitney Pier Heritage Whitney Pier Heritage Trail . Engineering and Public . Sydney Tar Ponds Agency Society Works . ECBC . Recreation . NS Health Promotion and . Greenlink Protection . Rotary/Ki nsmen GreenLink . ECBC . Membertou . Cape Breton Regional HosQital . Planning . ECBC . Sydney and Area Chamber of Cross Harbour Ferry . Recreation . NS Transportation and Commerce Infrastructure Renewal Downtown Syd ney to . Engineering and Public . ECBC . Sydney and Area Chamber of Mayflower Mall Link Works . Sydney Tar Ponds Agency Commerce . Planning . Engineering and Public . Whitney Pier Heritage Victoria Road - Whitney Pier Works Society . Planning . Engineering and Public . NS Transportation and . Cape Breton University\ Sydney - Glace Bay Multi- Works Infrastructure Renewal . AcTraC use Path . Planning . Recreation . Engineering and Public . NS Transportation and . Velo Cape Breton Westmount Road Upgrades Works Infrastructure Renewal and Reduced Speed Limits . Planning . Pol ice Services . Engineering and Public . CBVRSB . TRAX North Sydney Walking and Works . NS Health Promotion and Cycling Improvements . Planning Protection . Pol ice Services . Engineering and Public . CBVRSB . TRAX Sydney Mines Walking and Works . NS Health Promotion and Cycling Improvements . Planning Protection . Pol ice Services August 2008 Page E.12 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN DEVCO Rail Line . Engineering and Public Works . Planning . Recreation . Cape Breton Development Corporation . Youth Action Committee . Velo Cape Breton . Cape Breton Island Pathways . A TV Association of Nova Scotia . Trails Nova Scotia . Cape Breton Island Hoppers Volksport New Waterford Highway Paved Shoulders . Engineering and Public Works . Planning . Pol ice Services . Engineering and Public Works . CBVRSB . NS Health Promotion and Protection Community Walking Loops . Department of Transportation . Velo Cape Breton . Destination Cape Breton August 2008 Page E.13 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN 1. INTRODUCTION 1.1 Study Overview and Process 1.1.1 WHAT IS ACTIVE TRANSPORTATION? Active transportation refers to any form of human-powered transportation - walking, cycling, wheeling, in-line skating, skateboarding, skiing or paddling. Active transportation is something everyone does in some form or another, whether it is walking to the bus stop, going for a bike ride with the family or cycling to school. Residents who turn to active transportation as a viable means of commuting and carrying out personal business realize benefits in terms of health, happiness, reduced travel costs, and the satisfaction that their travel produces almost no pollution, benefiting the environment. I' . tt , ~;~; .2S:..,r....~1 . .- 1.1.2 STUDY PURPOSE AND OBJECTIVES In recognition of the many benefits of active transportation, Cape Breton Regional Municipality (CBRM) initiated a study to undertake an Active Transportation Plan. A key underlying objective of this plan is to improve the quality of life and health of residents, by encouraging more people to use active transportation. Achieving this objective requires that the CBRM ensure safe and attractive conditions for walking, cycling and other non-motorized forms of travel for all of its residents. Through the completion of an Active Transportation Plan, CBRM will: . Facilitate developing a common pedestrian and cycling vision, along with goals, policies and tools to guide on-going work; August 2008 Page 1 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN . Ensure that walking and cycling facilities within and between communities are connected and continuous; . Establish education, enforcement, and promotion programs to enhance the real and perceived safety of walking and cycling and establish non-motorized travel as a viable transportation alternative; . Develop planning and design standards for road facilities that are more conducive to active transportation. The Active Transportation Plan is inclusive of streets, trails, recreational activities/facilities and natural environment attractions; however, the primary focus is on active transportation facilities that support regular, every day travel. 1.1.3 STUDY PROCESS The Active Transportation Plan is being guided by the CBRM Active Transportation Committee, a partnership of the Cape Breton Regional Municipality, Public Health Services (a Shared Service of the Cape Breton District Health Authority and the Guysborough Antigonish Strait Health Authority), Province of Nova Scotia, the Cape Breton Victoria District School Board, Membertou First Nation, ACAP Cape Breton, Velo Cape Breton, the Sydney and Area Chamber of Commerce, and Cape Breton University. Specific departments involved within the province and CBRM include: CBRM Province of Nova Scotia · Engineering and Public Works · Planning · Recreation · Police Services · Health Promotion and Protection · Transportation and Infrastructure Renewal The Active Transportation Plan study was divided into three main phases as follows: . Phase 1 - Existing Conditions and Study Vision . Phase 2 - Regional Bicycle and Pedestrian Plan . Phase 3 - Implementation Strategy During the study, interim reports were prepared for the Phase 1 and Phase 2 components of the study. Results of the third phase are included in this final report. The purpose of this report is to summarize the results the entire study including the Active Transportation Master Plan and proposed implementation strategy. 1.1.4 ORGAN IZA TION OF REPORT The report is divided into six chapters as follows: . Chapter 1 provides an overview of Active Transportation, the study process and objectives and a proposed Vision and guiding principles; August 2008 Page 2 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN . Chapter 2 provides a brief summary of some of the key benefits of active transportation including health benefits, environmental benefits and economic benefits; . Chapter 3 describes the existing communities, their people, and defining features, along with an assessment of existing active transportation i nfrastru ctu re; . Chapter 4 provides a description of actions and initiatives that can serve to enhance conditions for active transportation; . Chapter 5 outlines the recommended active transportation network, along with a description of potential signature projects; and, . Chapter 6 proposes an implementation strategy and assessment of the financial implications of the recommended plan 1.2 Community Vision With the assistance of the Active Transportation Committee, and based on input from stakeholder consultations, the following was established as a Vision for the AT Plan: The Active Transportation Plan will improve the health of the citizens of CBRM by creating opportunities to connect this "community of communities" through walking, rolling and cycling in a manner that will sustain social, economic and environmental benefits. To achieve this Vision, a walking and cycling environment should be created that: 1. Reaches the entire community, from children to seniors, and the full range of socio- economic circumstances 2. Assists students in walking or cycling to school and other places within their communities 3. Improves access to the community for those with physical or cognitive impairments 4. Prioritizes connecting cycling and walking with transit 5. Considers all modes, including auto mobility, to create "complete" streets 6. Reduces crime and contributes to personal comfort and security 7. Contributes to healthy and active citizens and a healthy work force, reducing the associated risk of chronic disease 8. Will allow a shift in public funding from health to other initiatives once walking and cycling are again realized as normal and routine activities for getting around the CBRM 9. Respects the cultural identity of the individual communities within the CBRM A central goal of the Plan is to get more people to walk, run, or roll as part of their daily routine, and for some, enable them to make Active Transportation their primary travel mode. August 2008 Page 3 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN 1.3 Public and Stakeholder Consultation Development of the AT Plan benefited from several different public consultation activities including: . Phase 1 Public Open Houses in November 20071 . Thirteen Focus Groups2 . Walk-abouts and a bike tour . Stakeholder meetings . Student Projects . A Web Survey . Council presentations . Phase 2 Public Open House in April 2007 Detailed summaries of each of these activities are provided in the Phase 1 report, with the exception of the final public open house summary, which was provided as a separate document. All events were well received and it is estimated that that over 500 people were directly involved in at least one of the consultation activities. The final open house attracted approximately 250 All public consultation activities were significantly enhanced by the participation of AT Steering Committee members, through the identification of stakeholders and efforts in planning and attending the various events. Key themes from the public and stakeholder consultation activities can be summarized as follows: . There is strong support for enhancing active transportation, and a recognition of the significant health and environmental benefits of doing so . There are significant opportunities for partnerships . Common threads relate to kids/youth and health . Residents are willing to commit energy to implementation Consultation with the public and stakeholders was instrumental in helping to identify themes, or opportunities and deficiencies, to be address by the AT plan, as follows: 1 Phase 1 Open Houses were held at North Sydney Mall, New Waterford Sobeys, Mayflower Mall, Sydney Marine Terminal Farmer's Market, Glace Bay Bayplex. 2 Focus groups were arranged with Stream Call Centre, CB Regional Hospital, Downtown Sydney Employees (through the Chamber of Commerce), Cape Breton Regional Police Services, CBRM Seniors Group, Greenlink (Walk-about), Cape Breton University, Memorial High School, MacLennan Junior High, Cape Breton-Victoria School Board, The Vista Heights seniors building, Whitney Pier Historical Society, Isle Royale ATV Club August 2008 Page 4 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN Infrastructure: . Provide a combination of infrastructure that supports Active Transportation, including bike lanes, paved shoulders, multi-use trails, walking tracks and sidewalks . Improve transit and provide bike racks on buses . Provide end-of-trip facilities such as secure bicycle parking and showers / change rooms Practices: . Address sidewalk maintenance in the winter . Address the provision of sidewalks and rehabilitation of sidewalks in poor condition, and the condition of roadways to improve the safety and comfort of cyclists and pedestrians Programs: . Create maps and guides that promote walking and cycling . Develop programs that encourage more people to choose active transportation including for school trips . Educate drivers about the rights and responsibilities of cyclists and pedestrians to improve everyone's safety August 2008 Page 5 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN 2. BENEFITS OF ACTIVE TRANSPORTATION 2.1 Healthy Citizens There is growing research about the benefits of active transportation in promoting healthy lifestyles and reducing the risk of disease. With this has come an interest in communities that, by design encourage more physical activity and reduce automobile use. Other health benefits of reduced automobile dependence include reduce air emissions, accidents, and noise pollution as well as increased social opportunities. Promoting more physical activity in the CBRM will be vital to the community's well being, particularly as the population ages and the risk of cardiovascular and chronic conditions increase accordingly. In the on-line survey conducted for th is project, 790/0 of respondents indicated that knowledge of the risks of inactive lifestyles has made (or will make) them walk or cycle more. Regrettably, a recent report showed that 490/0 of those surveyed in the CBRM were physically inactive, but this level of activity varies considerably by age (see Exhibit 2.1 )3. Of those who are active, walking for exercise was the most common activity. Among the respondents, 400/0 were considered overweight and 250/0 obese, which are slightly higher levels than the provincial averages at 360/0 and 230/0 respectively. Those with high body mass indices (BMlt face considerably higher risk of heart disease, asthma, arthritis and high blood pressure. Although there are many factors that contribute to our weight, regular physical activity is well established as an important influence. One of the most significant contributors to declining levels of physical activity is the design of communities and the associated dependence on automobiles. It is only in the last decade that the very clear connection between urban sprawl, travel patterns, and health have come to light. A strong association between the three is now well-established, but how sprawling development patterns actually affect our travel choices and subsequently contribute to health problems remains under-researched. The built environment is inevitably part of the equation and a recent U.S. study suggests that a sprawling versus compact built environment could account for as much as a 2.9 kg (almost 6.5 pounds) difference in average body weight of residents5. Copyright @ Randy Glasbergen. WYIW.gl asbergen.co m ,"GLAS0~~- - "What fits your busy schedule better, exercising one hour a day or being dead 24 hours a day?" One of the largest areas of concern is with children. On a national basis, 250/0 of children between the ages of 5 and 19are considered overweight and this proportion is increasing. Furthermore, the activity levels of Canadian children dropped by 3 The report, "Understanding Our Health" by Nova Scotia's Public Health Services, defines physically active as having an average daily expenditure of 3.0 or more kilocalories per kilogram of bodyweight. 4 BMI = Weight (kg) / Height (m) Based on this ratio, Public Health Services defines the following categories: Underweight: BMlless than 18.5 Normal: BMI between 18.5 and 24.9 Overweight: BM I between 25.0 and 29.9 Obese: BMI of 30.0 or greater 5 Ewing, R. et a!. Relationship Between Urban Sprawl and Physical Activity, Obesity, and Morbidity. Journal of Public Health Promotion, 18(1),47-57,2003 August 2008 Page 1 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN 300/0 between 1990 and 19986. Accordingly, CBRM's schools are critical hubs for promoting active transportation and encouraging healthy habits early in life. There is large potential to encourage more travel by walking and cycling for this age group. For example, a survey found that nearly 75 per cent of Ontario children would prefer to walk or cycle to school on a regular basis7. Furthermore, 91 per cent of school-aged children have access to a bicycle, and almost 45 per cent of Canadian children live two kilometres or less from the school they attend; however, 64 per cent never cycle and 47 per cent never walk8. These results are consistent with anecdotal information obtained through discussions with children and parents during the November public meetings and during the focus groups with the two CBRM schools. Exhibit 2.1: CBRM Physical Activity Levels 700/0 600/0 500/0 Q) C) co 400/0 .... c:: Q) (.) 300/0 s.. Q) D.. 200/0 100/0 00/0 - - .---- .---- f---- - - - - - Physically Inactive Moderately Active DYouth o Adults o Seniors Regularly Active 2.2 Quality of Life and Happiness Many people view physical activity, particularly that incorporated into daily activities, as important to their overall level of satisfaction. A recent Statistics Canada study revealed that 19 per cent of cyclists reported their commute as the most pleasant activity of the day, whereas only 2 per cent of drivers felt the same9. This suggests that improvements to active transportation facilities could result in happier commuters. It's easy to imagine the playful sense of adventure that children bring to walking trips. They are very much engaged in the journey. They are living in the moment, the very thing that we aim to achieve through the practice of mindfulness (now shown to be linked to positive emotions and physical well- being) O'Brien, C., Planning for Sustainable Happiness: Harmonizing Our Internal and External Landscapes, 2005 Research also suggests that firms which are not accessible to other activities within a close walking distance, deal with significant decreases in employee satisfaction as these employees struggle to 6 WHO (1996) Health Behaviour Survey, A Cross-National Study 7 Ontario Walkability Study (2001) Trip to School: Children's Experiences and Aspirations. 8 Go for Green (1999) The Case for Active and Safe Routes to School. 9 Statistics Canada (Nov, 2007) The Daily: How workers perceive their daily commute to work. August 2008 Page 2 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN re-organize non-work activities which they used to take care of during lunch or on the way home from work. Banking, dry cleaning, grocery shopping, etc. are often pushed to the weekend, meaning there is less time to relax. Walking and cycling are feasible in compact, mixed-use communities, and supportive environments help us to manage our schedules more efficiently. This ultimately improves our quality of life. 2.3 Accessibility for All Active modes are the most equitable forms of transportation because they are available to everyone. Conversely, planning transportation systems around the automobile degrades mobility for those who do not have a driver's license or cannot afford a vehicle. Such vulnerable populations might also include low-income families that are pushed into poorly accessible neighbourhoods in order to afford housing. As a result, an already overburdened segment of the population must devote significant portions of its time and income to transportation. In some cases these people have no choice but to own a private vehicle. Investment in cycling facilities and neighbourhood walkability along with transit improvements offers a tremendous opportunity to improve access to employment and services for everyone, particularly the region's most vulnerable. With an aging population and increasing fuel prices, mini-electric motorized modes of transport, such as Segways, scooters, and golf carts may become more popular as affordable, convenient options for short-distance trips. Pathways and bicycle lanes may have the potential to accommodate these mini-electric modes and support connections between CBRM's communities. 2.4 Promotion of Sustainable and liveable Communities It is widely recognized that pedestrians tend to feel more secure and comfortable walking where there are more people milling about (more "eyes on the street"). Areas that create comfortable environments for active modes help to foster the area's social inclusivity and sense of place. This support can come in many forms, such as convenient connections between destinations; street lighting, cleanliness, street furniture, and trees; mixed land uses; calm motorized traffic; and neighbourhood social-mixing. CBRM is in an enviable position in that its core communities are quite compact and include a mix of housing, shopping and employment uses. For the most part, the core communities are laid out on a grid pattern, which improves connectivity for walking and cycling trips. Because of slow population growth, the type of uncontrolled outward development that has been taking place in Canada's larger urban areas has not taken place in CBRM. However, there has been some sprawl development recently in the form of low density communities and rural subdivisions outside of the urban area. 2.5 Reduced Emissions and Energy Use In the past few years, there has been a significant increase in media attention on climate change issues as well as the potential for energy shortages in the near future. All levels of government are now under substantial pressure to introduce programs that will help achieve greenhouse gas (GHG) emission targets and improve air quality. The creation of "Conserve Nova Scotia," the provincial government agency responsible for energy efficiency and conservation, is just one example of how serious governments believe these issues to be. August 2008 Page 3 181 GROUP FINAL REPORT Since all modes of active transportation emit zero emissions, they can playa significant role in helping to meet the aggressive targets starting to emerge from various levels of government. Active transportation modes are particularly beneficial in that they usually replace short, cold start trips for which internal combustion engines have high emission rates. Therefore, each 1 % of automobile travel replaced by active modes reduces motor vehicle air pollution emissions by 20/0 to 40/010. 2.6 Reduced Travel Costs Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN Transporlation accounts for 37 per cent of energy use in Nova Scotia, so broadening the transporlation options available for Nova Scotians is a key focus for creating a greener and more sustainable Nova Scotia. Bill Dooks, Minister responsible for Conserve Nova Scotia (Source: Conserve Nova Scotia press release, June 5, 2007) Active modes of transportation are the most cost-efficient, from both a personal and community perspective. While difficult to quantify, the potential community-wide cost reductions from increased walking and cycling are extensive and include health care costs due to air pollution, water pollution and collisions, traffic congestion, and parking provision. Personal travel cost savings are also significant. CAA estimates that the average annual cost of owning and operating a vehicle is as much as $14,000 per year when both ownership and operating costs are factored in (www.caa.ca). Therefore. investments that allow residents to walk or cycle to their destination (including transit), go a long way to improve personal transportation affordability. Go For Green has estimated that commuting by walking and cycling saves Canadians over $800 million per year compared to commuting by automobile11. This works out to approximately $180 in annual savings per walk commuter and $570 per bicycle commuter. If the ability to walk or cycle to work allows one to own fewer vehicles, the cost savings would obviously be much higher. 2.7 Reduced Infrastructure Costs Infrastructure costs for active transportation are minimal compared to the roadway expenditures required to support travel by motorized vehicles. For example, widening roads for bicycle lanes costs in the order of $150,000 per kilometre, paved pathways cost approximately $225,000 per kilometre, while adding cycling lanes without road widening (i.e., restriping) costs approximately $20,000 per kilometre12. These costs are significantly lower than the approximately $1.3 million for widening a two lane urban arterial road to four lanes13. The cost differential is compounded when one considers that cyclists and pedestrians make more efficient use of infrastructure. A roadway can carry seven to twelve times as many people per metre of lane per hour by bicycle compared to by automobile at similar speeds in urban areas. Paths for pedestrians can handle 20 times the volume per hour than roads for cars in mixed urban traffic14. While adding bicycle lanes or a paved pathway alongside a roadway may not remove the need for road widening, these costs and statistics demonstrate that walking and cycling trips make more efficient use of the existing transportation system than auto trips and are more cost-effective to accommodate. 10 Komanoff, C and Roelofs, C. (1993) The Environmental Benefits of Bicycling and Walking, National Bicycling and Walking Case Study No. 15, U.S. Department of Transportation, FHWA-PD-93-015. 11 Go for Green (2004) The Business Case for Active Transportation: The Economic Benefits of Walking and Cycling. 12 City of Toronto Bike Plan (2001). 13 Go for Green (2004) The Business Case for Active Transportation: The Economic Benefits of Walking and Cycling. 14 Go for Green. Active Transportation Community Solutions for Climate Change. August 2008 Page 4 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN 2.8 Increased Tourism Potential Communities that have invested in active transportation infrastructure, and particularly cycling infrastructure, are starting to realize the pay-offs. For example, The North Carolina Department of Transportation commissioned a study in 2003 to examine the impacts of investments in bicycle facilities and concluded that $6.7 million of public funds spent to construct off-road paths and adding wide paved shoulders to roads in the Outer Banks Region yielded an annual economic benefit of $60 million, largely through increased tourists who came to the region to bicycle15. La Route Verte in Quebec is another example of how cycling facilities can contribute to increased tourism. This 4000 km long network of bicycle Route Verte is credited with generating more that 50 million in direct annual expenditures from "cyclotourists" alone.16 (www.routeverte.com). There is significant potential for active transportation to playa role in CBRM's growing tourism industry. For example, when cruise ships moor in Sydney harbour, people on these cruise ships immediately become pedestrians. Their experience in Cape Breton is influenced by the first few steps they take off the ship, which is in turn influenced by the quality of the pedestrian environment. Cape Breton is also renowned for its scenic vistas and tourist routes. Ensuring that these routes can be enjoyed using any mode of transportation will increase tourist opportunities. 15 Pathways to Prosperity, The Economic Impact of Investments in Bicycle Facilities, N.C. Department Of Transportation, Division Of Bicycle And Pedestrian Transportation, 2003 16 www.routeverte.com August 2008 Page 5 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN 3. EXISTING CONDITIONS AND FUTURE OPPORTUNITIES 3.1 Socio-Economic Context The Cape Breton Regional Municipality (CBRM) is the result of a 1995 provincial amalgamation of 8 small municipalities. In 2006, the municipality's total population was only 105,968, and although the region comprises 2,471 km2, the majority of the population resides in the core communities illustrated on Exhibit 3.1. Like New Brunswick's North Shore and many coastal Newfoundland communities with resource- based economies whose stocks are depleting or whose economic relevance is shrinking, the CBRM has seen a steady population decline since peaking at 131,507 in 1961 (see Exhibit 3.2). Over the same time period Nova Scotia's population has been stable (at times growing slowly) and the Halifax Regional Municipality has grown by approximately 4-80/0 per census year. The adjacent municipalities of Richmond and Victoria have suffered rates of population decline similar to the CBRM, while the Municipality of Inverness fared slightly better, although still declining. As with every North American city, the CBRM will have to deal with a population saturated by aging baby boomers. Furthermore, as would be expected, many young adults leave to pursue employment and post-secondary education opportunities in other cities, particularly in Halifax. This is, in fact, the primary cause of population decline for the region, especially for young men. With few of these students returning home, the echo generation following on the coat tails of the aging baby boomers will be but a murmur, both in absolute and relative terms. By 2021, the overall CBRM population is projected to have declined to 92,81517. With a sustained small childbearing population, it is also predicted that relatively few school-aged children and young adults will live in the region by 2021 (see Exhibit 3.3). Thus, the CBRM is expected to comprise a relatively large proportion of seniors in the long term, not simply due to natural processes. It is appropriate that the Active Transportation plan set in place policies to ensure that transportation facilities such as sidewalks, pathways, transit, etc. are designed for persons who may have mobility limitations, such as seniors. ~ ...~ ~~- ~-.. 17 Based on a cohort survival analysis by Environmental Design and Management Ltd., using 1991-2006 trends. August 2008 Page 6 h ca \ c: sa.. "- ~ --.... ...._-1...............~.~ '"' . \' \ " '-...~ .... ... .\'L ./ 1-- ~. I~ t" ._~ J, .~ ~-~"---.... '~~ "~:,t. j I' ------'\..~, fj, '.,.."...~ - ~ \ ..... '---, .. "" - \ "- \\0 ""-'). '~ J ./' , J _ ~ 1 - -t - 7;r- - - - -". ./- .1' ~ 1'e: -- Jkm\ _~",,"'1 IJ~R- '~/ -'e- ;j~J~ ~J"~: "'<. '1 ~~'~.t " ll. ../ L: ~~~:_ . 1 /~~7: \= /~// 0- ; , .~ '. \ \_-~ l.:-- " ,/ ...: .;. ~, A"~, \ !€>@E>!" ml .... :t. (\ y~ :;, ~ ~ I' ~ r <> <> :l: <> '" " ; go. ~31!" 0 ~ I ~ i ~ S ~ I rf. ;: :;, - ro r (~ :;; ~ ~ ~ I ~ f~ i s ~ ~ ~ ~ ~ I ~ 1" , ,. " .. i ~ .. ~ m ~ ~ ~~ i.;. ~ '~I I :::r'I 0 0 m ~ ;; ~ ,) E ~ ~ r, ~ ~~. ~ I LA' :;;: ~ ~ n ~ ; ~ f'ilo w ~ ~ 1'; ~ . --_. -........... - ...,., I ./ It. -'"' /- /' .. /- .,. ..' \ \. ~,~, I __-",.J I ) t I Il I \, \ y l _ _r~' ./ ./ . r I~ I ..,.. 1\ " OJ G) ;;0 o C ""C "'Tl z )> r :::0 m "lJ o :::0 --I o 0) -c CD OJ )>-, n~ -10 <:::J m;o -I CD ::::ace )> -. Zo cn:::J ""'CO) 0- ~s: )>c -I:::J o n. Z -. -c ""'CO) ~~ Z,< 181 GROUP FINAL REPORT 90-+ 85--89 8~a4 75-79 7(J!. 74 65-59 6 (t.. 64 55-59 51J-54 4549 ~t1J-44 35-39 31}...l4 25--29 2 a.. 24 15-'1' 9 11).14 5-9 04 Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN Exhibit 3.2: CBRM Population, 1956-200618 135000 4.8% 1- 0.8%1 130000 125000 1- 2.8% 1 120000 c: 0 ; 115000 .!!! 1-7.2%1 ~ c. 110000 0 1- 3.1% 1 a.. 105000 100000 95000 90000 1956 1961 1966 1971 1976 1981 1986 1991 1996 2001 2006 Year Exhibit 3.3: CBRM Age-Sex Population Forecast, 2006 & 202119 1.:585 iiI :1.265 . '.730 ~ Z,f;.~35 __.~ll. j '2,8e{') IIIi: 1IiIiiII. I S,:i'!1 0 ~~il.o 4.2'85 4,5:25 .4. 78.5 -1', J.o5 j61s .m '~40 I ~ f.S3a I::S-~ft " no SO.... SS.-89 80-84 75-79 70-7.1 65--69 61).64 .Jt!.~ 1['.1'1.': h E:11;~~:~ t:~;;:!j 3.!W5 ......." I' Z. 7S(I. ~ '.4150 ~""" ,:. 2~5SS ~ 2.2'55 ~ 1.9';0 ~ 1.<<20 ~"";JI:I r 2, J GO ~ :,8"10 ~ J.6JO ~.~ 4.000 2.000 0 2.000 J 00:5 i,3M 4,135 4 235 3,J,65 2, 881) 2,:'555 5fi..59 50..54 .15--4.9 40...44 35-39 30..3.: '-5--29 20-24 15-19 1o-1~ 5-9 (H1 6.000 ~. 3i3D 4.220 [, FemEJes . Males Fc~c.s . Malus ~n_', I ~m ...- ~Tmr. ~Jr;~~il I J.1~O .1, f.s-S 3. .::i'O 5 2', f"s'O 2,2,205 5,000 4,000 2,000 2,000 4.000 6,000 o ~.OOO 6.000 2006 2021 3.1.1 ECONOMY In 1996 the Economic Dependency Ratios for every community within the CBRM were significantly higher than those of Nova Scotia, Halifax, and the national average. Indeed, the CBRM falls short of the Province and Canada in nearly all socioeconomic indicators. Furthermore, looking beyond current conditions, economic trends are also bleak and recent population forecasts by Terrain 18 Source: Statistics Canada & Cape Breton Regional Municipality 19Population Projections for Cape Breton Municipal Units - 2006-2021 - DRAFT REPORT, Environmental Design and Management Limited August 2008 Page 8 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN Group Inc are equally gloomy. However, these projections are based on the assumption that migration trends between 1996 and 2001 will continue unabated, with the implicit assumption that the socio-economic forces behind them will also persist. The region has historically been based on coal mining and steel, both of which suffered acute setbacks during the 1996-2001 period: The Cape Breton Development Corporation (DEVCO) announced significant job cuts in 1999 then closed its coal mines in 2001 and Sydney Steel Corporation's steel mill was closed in 2000. The eastern communities of Glace Bay, New Waterford, Scotchtown, New Victoria, Reserve Mines and Dominion were particularly hard hit. Although economic decline is expected to continue in the short-term, we cannot predict whether and how the area will reinvent itself. Although the 2006 population has fallen 3.1 % since the 2001 census, it did not reach the predicted 7.70/0 drop based on 1996-2001 trends. As well, despite the period's economic woes, unemployment rates dropped, particularly for women and 15-24 year olds (4.90/0 and 7.1 % drops respectively). Education levels in the region are also showing slight improvements with a lower apparent drop-out rate and more degrees in higher education, particularly trade certificates and diplomas. According to a CBRM Planning Department report, although the CBRM still lags behind the provincial average, these small improvements in education attainment level have been continuing since 1986. There are many promising possibilities for revitalizing the area's economy and stimulating growth, such as the wind and hydro power project, the tar ponds rehabilitation project, or expanding cruise ship tourism via Sydney's port. It is essential that the municipality embrace a post-industrial economic shift to a diverse economic base if it is to attract and keep a young and mobile generation looking for communities offering a high quality of life. Active transportation could playa key role in accelerating this shift. 3.2 Core Communities One of the defining characteristics of CBRM is its very distinct and well defined communities. It is only 13 years since these communities were amalgamated under a single municipality, and as a result each community has developed in its own unique way. This includes the development of infrastructure such as roads and sidewalks as well as the development of land uses. The remainder of this section provides a brief perspective on each of the core communities and some of the defining features related to active transportation in each community. Further details on specific infrastructure issues and opportunities are provided in the next Chapter. 3.2.1 GREATER SYDNEY At approximately 24,000 people, Sydney represents the largest concentration of population within CBRM. Greater Sydney is also the main financial and commercial centre in the Region. Sydney is defined by its Central Business District and waterfront. Sydney is also closely tied to the Membertou Reserve, which is an integral part of the urban environment. Westmount, across the Sydney River from the Downtown, is home to many residents who work in Sydney proper. Most of the older neighbourhoods surrounding downtown Sydney, and specifically the North End, are very pleasant to walk in. As shown on Exhibit 3.4, sidewalks are provided on most streets in the older areas. Recent investments in the waterfront, cruise ship facilities, and boardwalk have been a tremendous benefit to the attractiveness of the downtown for pedestrians. August 2008 Page 9 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN Unfortunately, as with many Canadian cities, the newer parts of Sydney have been designed with an emphasis on motor vehicles. Mayflower Mall, the Walmart on SPAR Road and the commercial areas along Kings Road at Keltic Drive are all fairly inaccessible for pedestrians or cyclists. Much of this is a result of the fact that parking is generally over-supplied and provided at the front of the buildings. Everyone arriving by walk, cycle or transit must navigate through this parking to reach their final destination. In general, there are significant opportunities to build on the great existing features of Sydney and to address many of the barriers for active transportation through a series of strategic improvements as discussed later in th is report. . Sydney Boardwalk: A Success Story Some thought that the construction of a boardwalk along Sydney's waterfront was a waste of money. However, once constructed, residents started to see the advantages of the boardwalk. On a typical summer evening some of the activities on the boardwalk may include a group of seniors holding an impromptu concert, families enjoying a stroll or recreational joggers getting some exercise. The boardwalk is an example of how a signature project can be a catalyst for the community, while at the same time contributing to wider economic development and tourism goals. August 2008 Page 10 181 GROUP FINAL REPORT Exhibit 3.4: Existing Conditions-Sydney Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN , . I;i . I ;v Schools . Community Centres . Hospitals & Healtll Care Facilities :, - Existing Sidewalks August 2008 Page 11 181 GROUP FINAL REPORT 3.2.2 GREATER GLACE BAY Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN Glace Bay is the second largest urban community in CBRM and is a major employment hub. The evolution of Glace Bay and the surrounding communities of Gardiner Mines and Dominion is closely tied to the coal mining and fishing industries. However, these industries have all but disappeared and are now being replaced by "new economy" jobs such as call centres. For example, Stream now employs more than 1000 people in Glace Bay. Several strategic projects have helped Glace Bay to maintain the attractiveness of its downtown core, including the establishment of the parkette on Commercial Street. Investments have also been made to improve the coverage and condition of sidewalks such that the majority of the streets in the urbanized area have sidewalks on at least one side of the street. Glace Bay also has a number of unique features that are "hubs" for active transportation including the new skateboard park, the Bayplex, Renwick Brook, the walking track at Bernard Croak Park and the former DEVCO rail line, which runs through the commercial area and is used by walkers and cyclists. There are still several barriers for active transportation to overcome in Glace Bay including filling in gaps in the sidewalk network, changing the mindset for some schools which currently discourage students from bicycling to school and ensuring that transit service levels are sufficient enough to allow people to rely less on cars. . From Abandoned Rail Line to Active Transportation Linkage The Glace Bay Youth Action Committee has recognized the potential in the abandoned DEVCO rail line with runs through the centre of the community. This rail corridor, which is mostly gravel at the present time, presents a significant opportunity to link up activities such as the skakeboard park, downtown employers, three schools and several parks and green spaces. August 2008 Page 12 181 GROUP FINAL REPORT ~~ /1.. ~ ~ney Airport ~~-/_.;; ~~ I August 2008 Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN Exhibit 3.5: Existing Conditions-Greater Glace Bay ~ ~/ rf ~ ~ '\ /t / . Community Centres . Hospitals & Healtll Care Facilities - Existing Sidewalks J Page 13 181 GROUP FINAL REPORT 3.2.3 GREATER NEW WATERFORD Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN As with Glace Bay, New Waterford's history is closely tied to the coal industry, however the last coal mine closed in 2001. Many people living in New Waterford and the surrounding community of New Victoria are retired coal mine workers, now seniors. With a population of under 7,000, New Waterford is a very close knit community. One of the defining physical features of New Waterford is that it is laid out on a closely spaced grid pattern, which makes walking and cycling quite easy. New Waterford is also known for its informal walking route (known to residents as "the loop") which is a rectangular route consisting of Heelan Street, Emerald Street, King Street, and Ellsworth Avenue. As shown on Exhibit 3.6, these streets are the only streets in New Waterford that have nearly continuous sidewalks and it is no surprise that they are the most attractive streets for walking. As discussed later in this report, there are significant opportunities to replicate the concept of the New Waterford walking loop in all other core communities, if not other communities in Canada! Recently, New Waterford has been fortunate to have a call centre locate within the community providing jobs for local residents. However, it is unfortunate that there are no sidewalks leading to this major employer. . The New Waterford Walking Loop: A simple concept worth replicating The "Loop" is the place to be in New Waterford if you want to get some exercise and meet your neighbours. The approximately 5 km loop of sidewalks is used by people of all ages. August 2008 Page 14 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN Exhibit 3.6: Existing Conditions-New Waterford ,. \.. , I ~-{ ~ ~ ~ / o Schools . Community Centres . Hospitals & Health Care FaciUties - Existing Sidewalks L' August 2008 Page 15 181 GROUP FINAL REPORT 3.2.4 NORTHSIOE Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN The communities of North Sydney and Sydney Mines are collectively known as the Northside and are home to approximately 15,000 people. North Sydney is the terminus for the ferries to/from Newfoundland. North Sydney and Sydney Mines are also the location of most of the newer manufacturing industries. As with Sydney, the older parts of North Sydney are very walkable, including Commercial Street and the area surrounding the ferry terminal. However, most of the newer commercial developments including and surrounding North Sydney Mall lack facilities for pedestrians and cyclists. Similarly, the industrial areas are not conducive for walking or cycling, which is not a concern for most of the businesses, but is a barrier for employees who wish to use active transportation modes to get to work. Most of the residential streets in North Sydney have sidewalks on at least one side. Sidewalks in Sydney Mines are less common, however many of the streets have fairly low traffic volumes. Park Street: Nearly a Bike Lane The community of Florence on the North Side is fortunate to have one of the only streets in CBRM that has provisions for cyclists. Park Street, which connects to Sullivan Junior High, has been designed with wide paved shoulders that provide space for cyclists. These shoulders are approximately 1.4 m wide, which is just shy of the desirable width of 1.5 m for a bike lane (minimum width recommended is 1.2 m). Park Street also has a separate sidewalk for pedestrians. It is unclear how this road came to have these features, while others do not; however it is certainly a concept worth repeating. August 2008 Page 16 181 GROUP FINAL REPORT < ) '" ~ "--- ---.. ~ August 2008 Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN North Sydney //~ // ,~ II PlJarine Atlantic Ferry Tern1ina( o Schools Community Centres H . ospltals & Healtll Care Facilities Existing Sidewalks . . Page 17 181 GROUP FINAL REPORT ~---- / , ~--I I \ ,,- ----.. .' \. ~\ -or;: e Schools Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN Exhibit 3.8: Existing Conditions-Sydney Mines \. ~ I I J jl I I , r " J ..........., J{err~:: ~\ _ II ({ ~~ /!yj' I / / II '--- "< l' ~ _ '1 . Community Centres . Hospitals & Health Care FacUities - Existing SIdewalks August 2008 I I II II I '\j I I \ I 11 \-~ ../ ',~___ I \-/ \~-~ ~ ,~I ,.\ '1\ \'1 Il .1 Page 18 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN 3.3 Current Transportation Behaviour The journey to work survey conducted as part of the Census provides information on current use of active transportation modes. As expected, the majority of commuters in CBRM currently travel by car as a driver or passenger, as shown on Exhibit 3.9. However, 6.20/0 of the respondents indicated that they regularly travelled to work by foot in good weather. Only 0.20/0 indicated they traveled by bicycle, which compares to 1.30/0 for the national average. Despite these current statistics, there are significant opportunities to increase the use of active transportation modes. Based on the on-line survey conducted for this project, 940/0 of respondents indicated that they would like to walk or cycle more. Almost 400/0 of respondents also reported that their commute distance was 5 km or less. This is consistent with the results of the Census which indicate that 450/0 of CBRM commuters travel less than 5 km to work, and the average commuting distance is 5.9 km. In comparison, the Canadian average commute trip distance is 7.6 km and only 360/0 of commuters are less than 5 km from work. Exhibit 3.9: Daily Commute Mode Split 11.9% 2.2% 6.2% 0.2% 1.8% 7.7% 1.2% 6.4% OWalking . Cycling o Public transit o Drive o Drive as passenger o Other 77.6% 72.3% Cape Breton Regional Municipality Canada Source: Census of Canada, 2006 August 2008 Page 19 181 GROUP FINAL REPORT August 2008 100 90 80 70 tJ) Q) tJ) 60 s::: 0 c. 50 tJ) Q) a::: .... 40 0 ~ 30 20 10 0 Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN Exhibit 3.10: Commuting Distance - - - - - - - - - - - Less than 2 2 to 5 5 to 10 More than 10 Dista nee (ki m) Source: CBRM AT Plan on-line survey 3.4 Pedestrians 3.4.1 CONTEXT There is surprisingly little research on pedestrian behaviour. Erving Goffman, in 1971, went as far as to consider pedestrians as "vehicular units", distinguishable for the thickness of their shell, their extreme vulnerability to injury, and their ability to "twist, duck, bend and turn sharply" (p. 8). Pedestrians can "reverse themselves, walk through buildings, climb over barriers, and negotiate tight passages with a facility impossible for automobiles" (Hill, 1984, p. 9). As absurd as such a comparison may seem, it points to the remarkably different needs of pedestrians compared to other modes of transportation, yet planning their facilities is so often treated as simply a footnote to the traffic engineer's day to day practice. Pedestrian behaviour is deceptively simple, but even a quick reflection on the complexities underlying walking suggests it is much more than just putting one foot in front of the other. There are many unique features of pedestrian travel worth keeping in mind when thinking about pedestrian needs, particularly when compared to other modes of travel, which present both challenges and opportunities. For example: . Pedestrian trips are short. In the Greater Toronto and Hamilton Area, for example, two thirds of all commuting trips made by walking are less than 1 km, and 960/0 are less than 2.5km, which represents approximately a half hour walk. . Pedestrians are slow, but as such, keenly observant and sensitive to their environment. They demand a certain sensory complexity typically avoided in Page 20 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN planning for other transportation modes. "An environment comfortably stimulating from a car becomes monotonously boring on foot while what is interesting on foot becomes chaotic in a car [. . . .] The two environments need to be quite different in terms of noticeable differences and perceptual organization; at high speeds one needs distant views, simplicity and large-scale while at slow speeds one needs small-scale, intricacy, and complexity" [Amos Rapoport, Human Aspects of Urban Form: Towards a Man-Environment Approach to Urban Form and Design. Oxford: Pergamon Press, 1977]. Pedestrians use all their senses, not only visual. They are uniquely aware of surrounding smells, temperatures, sounds, wind, and textures. . Walking is inherently more social than other modes. Pedestrians, for example, make eye contact, say excuse me, ask for spare change, collect into streams on busy sidewalks, and cluster when they chat. Cooperation is a key aspect to understanding the social dimension to walking - most pedestrians expect the others to be cooperative. . Pedestrian needs are diverse. Significant gender differences have been observed in terms of route choice, walking speed, and differences in gazing patterns. These points and many others aspects are all heavily moderated by local culture - the side of the sidewalk we choose, how we make eye contact, where we cross the street. . Pedestrians often seek the most direct routes. As pedestrian travel is so much slower than other modes of travel, barriers and indirect routes can be major deterrents to walking. If the purpose of a pedestrian trip is non- recreational (i.e. to shop, visit a friend, travel to school or community centre), it is reasonable to assume that children and seniors are willing to walk 15-20 minutes, youth and adults are willing to walk up to 30 minutes. . Pedestrians often take "informal" routes. In comparison to automobiles, and bicycles to a certain extent, which require roads and trails, pedestrians can, and often do, use short cuts such as alleyways, public plazas, parking lots, and parks. They may also hop fences or pass through buildings open to the public, such as office towers or malls. . Pedestrian travel is influenced by land use. Pedestrian travel is more likely to occur in some zones (i.e. downtown areas, community centres, school zones), and less likely in others. Therefore the range, density and type of pedestrian infrastructure can vary geographically, depending on the location and type/form of land use. . Pedestrian travel is very "portable." Pedestrians can often transition to other modes of travel such as transit with relative ease, provided connections are accessible and conducive to walking. Although there are some broad generalizations to be made about pedestrians, there are always exceptions and painting them with such a broad brush does a disservice to their remarkable diversity. From children to the elderly, men to women, residents to tourists, pedestrians are a diverse lot with varying needs. "Pedestrians" include both residents and tourists and generally into one of the following four categories. August 2008 Page 21 181 GROUP FINAL REPORT August 2008 Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN . Walkers (i.e. casual or occasional walkers, recreational walkers, walkers out for exercise, hikers, utilitarian walkers who choose walking as their mode of travel or are forced to use walking as their mode of travel) . Jogger and runners . Users depending on Mobility Aids (i.e. Visually Impaired Persons using canes, Mobility Impaired Persons using devices such as canes and walkers, wheelchairs and electric scooters). . Other Small-Wheeled Users (i.e. skateboards, inline skaters, scooters, parents pushing strollers or pulling wagons etc.) 3.4.2 TYPES OF FACILITIES The pedestrian network is composed of a number of facilities, both formal and informal as described in Exhibit 3.11. Exhibit 3.11: Types of Pedestrian Facilities Sidewalks: paralleling roads, concrete or asphalt sidewalks vary in width and separation/buffer distance from vehicular traffic depending on type of road Low volume streets, where no sidewalks exist as is common for residential neighbourhoods developed in the 1950's to late 1980's, or where there is a partial asphalt sidewalk Page 22 181 GROUP FINAL REPORT August 2008 Granular or asphalt road shoulders in urban and rural areas. Facilities designed for special uses such as Walking Tracks or Boardwalks Multi use trails such as municipally owned and operated trails in parks and open public space; associated with natural heritage features; easements and walkways connecting one street block to the next; in or along linear corridors such as abandoned railway lines and hydro transmission lines; walkway blocks, alleys and through-ways (both interior and exterior spaces) on both public and private (e.g. commercial developments) Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN In addition to the above basic pedestrian facilities, pedestrian safety, comfort and convenience is also influenced by a wide range of features including: . Cross-walks and related devices such as pedestrian "push-buttons" . Access through parking lots . Plazas Page 23 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN . Street furniture (Benches, tables, ledges, etc) . Signage . Landscaping 3.4.3 EXISTING CONDITIONS, BARRIERS AND OPPORTUNITIES As mentioned in the previous chapter, there are many excellent features within CBRM's core communities for pedestrians including: . Generally continuous sidewalks in older urban areas . Presence of walking tracks in North Sydney, Glace Bay, Westmount and Whitney Pier . The boardwalks in downtown Sydney, North Sydney, Louisbourg and Dominion. . Presence of urban parks such as Wentworth Park (Sydney), Renwick Brook (Glace Bay), and Colliery Lands Park (New Waterford) . However, there are many barriers that either prevent, or restrict greater pedestrian activity including: . Lack of sidewalks on many streets, or gaps in the sidewalk network . Deficient sidewalks (e.g. crumbling sidewalks or sidewalks that are not accessible for wheelchairs) . Lack of pedestrian crossings, particularly in areas outside of the downtowns and/or lack of crossing protection (e.g uncontrolled cross-walks on Grand Lake Road) As shown in Exhibit 3.12, when asked what it would take to get you walking to work, the second highest response for the on-line survey was "more or better sidewalks". Fortunately, many of the existing issues related to the pedestrian environment can be addressed through continued upgrades to sidewalks, annual sidewalk expansion programs and targeted pedestrian safety improvement initiatives. More specific details on these improvements are provided in Chapter 4 of the Active Transportation Plan. August 2008 Page 24 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN Exhibit 3.12: Factors Influencing Walk Mode For those who don't walk to work, what would encourage them to do it? More direct routes I wouldn't make this trip by walking I Living closer to work/school More or better sidewalks Showers and a changeroom at work/school More considerate drivers Slower or less traffic on the streets More opportunities to run errands along the way o 10 20 30 40 50 60 70 80 90 100 # of Responses Source: CBRM AT Plan on-line survey (based on 238 responses) 3.5 Cyclists 3.5.1 CONTEXT "Cyclists" include both residents and tourists using a self-propelled bicycle and fitting into one of the following four categories. . Inexperienced-includes children who are learning to ride a bicycle, youth, adults and seniors who never learned to ride a bicycle or learned when they were younger and have forgotten. . Casual-includes users of all ages who ride occasionally for fun or transportation, often with limited cycling skills and/or cyclist confidence. . Recreational-includes users of all ages and skill levels who ride almost exclusively for recreation. This group also includes touring cyclists from different parts of the province, country or world . Utilitarian-typically experienced to very experienced cyclists who ride regularly, sometimes as their primary or only mode of transportation. Utilitarian cyclists are typically quite confident in their cycling abilities. Note: Some utilitarian cyclists do not like dedicated cycling facilities as they feel it impairs their right to ride directly in vehicle travel lanes with traffic and "take the lane" where they feel it is warranted. It has been our experience that we often have to reinforce this concept with the experienced cyclist who does not believe that network facilities are a good investment. We often tell them that we are not August 2008 Page 25 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN building the network for them, we are building it to encourage more bicycle use, and this ultimately benefits them as cycling receives a higher profile. A balanced network approach needs to be developed to address the needs of all of the above users. A balanced network provides a hierarchy of facilities that allows cyclists to make choices about where they will ride and what routes they can use to their destination. A hierarchy of facilities may also contribute to increasing bicycle use for recreation and commuting. Young and inexperienced users can start out on local neighbourhood streets, then graduate to cycling on neighbourhood collectors, followed by wide shared-use lanes and bike lanes on collector and arterial roads. Ultimately, they become experienced users and feel comfortable cycling with traffic on busy streets. Exhibit 3.13: Reasons for Walking or Bicycling I ride my bike or walk most often... The main reason I choose to ride a bike or walk is... to shoppi ng/err ands 70/0 to the car g% to transit 50/0 I don't do either to save time 5% 1% Other 6% it's fun 10% for physical exercise 61% to visit friends/neigh bo urs 70/0 to wo rk 110/0 to sa\,€ money 2% to school* 00/0 I don't ha\,€ access to a car 6% to help the environment 8% for recreation 610/0 for sport (racing) 1% Source: CBRM AT Plan on-line survey (based on 238 responses) 3.5.2 TYPES OF FACILITIES Cycling facilities can generally be grouped into on-road and off-road facilities. On-road facilities include: . Bike Lane-in an urban cross section, a dedicated space for cyclists located adjacent to the curb (or adjacent to on street parking lanes where on street parking is permitted). The bike lane is delineated with a painted line, and includes signage and bicycle symbols/stencils at regular intervals along the route. Typically located on higher order streets with higher traffic volumes, vehicle speeds or vehicle mix (trucks, buses and cars). . Paved Shoulder-in a rural cross section, asphalt of a specified minimum width (1.5m min) beyond a painted edge line. Typically located on higher order rural roads with higher traffic volumes, vehicle speeds or vehicle mix (trucks, buses August 2008 Page 26 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN and cars). Paved shoulders should also be considered for scenic routes where high volumes of cyclists and motorists are expected. . Wide Shared-use Lane, or Wide Curb Lane-in an urban cross section, a shared space for motor vehicles and cyclists consisting of a widened lane adjacent to the curb lane. Typically located on collector roads, this facility can also be used on arterial roads provided that traffic volume, speed and mix do not exceed reasonable thresholds. In some cases this route type can be supplemented with "Sharrows" and "Share the Road" signage. . Signed-only Route-in an urban or rural cross section, a shared space for motor vehicles and cyclists. Typically located on quieter low volume roads. Signs marking the route are typically the only feature, and these are useful for wayfinding. There are a wide variety of on-road facilities, as shown in Exhibit 3.14. Many of these types of facilities do not exist in CBRM and some do not yet exist in Canada (e.g. cycle tracks). However, these examples illustrate the possibilities for the future. Exhibit 3.14: Examples of On-road Bicycle Facilities Shared lane pavement markings are placed alongside the curb or on-street parking without a dividing line, thus suggesting that cyclists and vehicles share the lane. Benefits - help to improve the distance between bikes and the "door zone" of parked vehicles - low cost to implement - help legitimize the presence of cyclists on the roadway - politically palatable since they do little to challenge the status quo Challenges - improvements in safety and comfort are questionable, particularly for the more physically challenged - offer no new space for cyclists and thus may encourage a false sense of security August 2008 Bike priority corridors with traffic calming and diverters that only affect motorized traffic force motorists to drive slowly. In some cases, streets adjacent and parallel to main streets are designated as such. Benefits - Cyclists comfort vastly improves Excellent for encouraging the more timid and reluctant cyclists to use the facilities - Traffic calming features provide space to also enhance the pedestrian realm through street beautification and furniture. Challenges Inconvenient for cyclists as the major destinations are on the main streets. - Requires a well connected street network Installation of special signalling where these lower capacity streets intersect with main streets will likely be necessary Benefits - relatively low-cost - improve cyclist comfort over sharrows Challenges on-street parking can dramatically reduce their effective width require significant enforcement efforts to ensure motorists do not use the space for temporary stops right turning traffic merging into the lanes at intersections is confusing Evidence suggests that under some circumstances, particularly where lanes are too narrow, they provide less safety than riding in mixed traffic Page 27 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN -.... ~~ 13 ., ~~ The on-street bicycle lane is moved inside parked vehicles, directly beside pedestrians. Benefits - Buffers cyclists from moving vehicles and vehicles pulling in and out of parking - Prevents motorists from using the bike lane for temporary parking Challenges - Intersections require special attention as cyclists are harder for motorists' to see, especially where the track is behind on- street parking - Conflicts between pedestrians and cyclists are more common : , '~'. --:&~.-,;, ""'.... ... ... :.._ ra '~~. A cycle track with an approximately 1.5m - 2.5m median separating cyclists from moving vehicles. Benefits - A median provides space for pedestrians waiting to cross the street or transit riders as they (un)load - A median also provides space for street trees, furniture, and bike parking among other things Challenges - Intersections require special attention as they are even further separated from motorists' view and medians will likely be full of obstructions Benefits - Total segregation from traffic greatly improves cyclist comfort and safety Challenges Intersections, again, will require special treatment to balance cyclist safety and convenience Difficult to find continuous linear space in a built up environment Such routes, such as those that follow old railway beds, ravines, or hydro corridors, are often inconvenient for commuting cyclists Safety of pedestrians using the trails requires consideration 1 A path that runs between the sidewalk and the roadway, which is either grade-separated or has a barrier from moving vehicles. Benefits - Physically separates cyclists from moving vehicles - Prevents vehicles from parking on the cycle track Challenges - Bus and streetcar stops can cause conflict - Intersections require special attention as cyclists are harder for motorists' to see, especially where the track is behind on-street parking Benefits - Reduced space requirements as there is conflict with parking only on one side of the street Challenges - Intersections are particularly challenging as cyclists will be travelling in unexpected directions and special vigilance is needed on the part of both cyclists and motorists along with special traffic control. In addition to on-road facilities, Multi-use Trails are also used for either commuter or recreational cycling. Mutli-use trails may include an off-road trail through a park, public open space, along a August 2008 Page 28 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN utility corridor or in appropriate cases above the curb/beyond the shoulder within the road right of way. Surface type and width can vary depending on the volume and types of bicycles expected (i.e. road bikes vs. hybrids). A minimum width of 3.0m should be considered where bidirectional travel is expected, volumes are high, and/or there is a mix of pedestrians and cyclists. Exhibit 3.15 provides some examples of multi-use trails from other communities. Exhibit 3.15: Examples of Off-road (Mutli-use) Bicycle Facilities (Levis, Quebec) (Toronto, ON) 3.5.3 EXISTING CONDITIONS, BARRIERS AND OPPORTUNITIES Although cycling for recreational activities has been growing, aided by efforts by Velo Cape Breton and others, dedicated cycling infrastructure remains sparse. There are no marked bicycle lanes in CBRM and the number of routes with paved shoulders are few. As a result, cyclists generally ride with vehicular traffic (which is perfectly acceptable in some cases) or they ride on the sidewalks. Riding on-sidewalks (which is not acceptable) is an indication that facilities for cycling are lacking. '-... ........;: ..... As shown in Exhibit 3.16 when asked what it would take to get you walking to bike to work, the number one response for the on-line survey was "more bikeways." This response is typical of most similar surveys across Canada. When asked if installing bikeways August 2008 Page 29 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN was a good idea, 540/0 of the respondents said this was necessary while 400/0 said it would be a good idea. Starting with a few signature projects (as discussed in Chapter 5), the provision of cycling infrastructure will most certainly have the impact of increasing bicycle use. Improvements could be as simple as providing paved shoulders on roadways when they are re-constructed or creating new dedicated cycling facilities. As with pedestrians, cycling use is also influenced by the attractiveness of the surrounding environment and provision bike racks, showers, lockers, signage and other supporting amenities. More specific details on these both physical infrastructure measures and supporting amenities to encourage cycling are provided in Chapter 4 of the Active Transportation Plan. Exhibit 3.16: Factors Influencing Cycling Use For those who don't ride to work, what would encourage them to do it? More bikeways (lanes, paths, signed routes, multi-use trails) I wouldn't make this trip by bike Living closer to work/school Secure bike parking Showers and a change room at work/school A more direct route More opportunities to run errands along the way o 20 80 100 120 140 40 60 # of Responses 3.6 Trails and Recreational Facilities Many of the types of facilities discussed in the previous two sections can be used for either utilitarian (e.g. commuting, shopping, business) trips or recreational uses. However, there are also several other types of facilities that support active transportation, primarily for recreational purposes including: August 2008 Page 30 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN . Rural trails . Walking paths through parks (e.g. Bailie Ard, Wentworth Park) . Skateboard parks (e.g. Glace Bay, Coxheath) . All terrain vehicle trails and snowmobile trails . Trans-Canada Trail Many of these types of facilities are informal and have developed over the years throughout the entire rural area of CBRM. Where recreational trails are shared by both motorized vehicles (e.g. ATVs) and active transportation modes, issues often arise as to who has the right to use the trail. Moving forward, the active transportation strategy will need to look for ways to resolve existing conflicts as well as identify where different trail users can be mutually supportive of each other. For example, many rural trails would not exist if A TV's did not keep the trails clear of brush and undergrowth. August 2008 Page 31 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN 4. ENHANCING CONDITIONS FOR ACTIVE TRANSPORTATION 4.1 Pedestrian Planning, Design and Maintenance 4.1.1 REFERENCES The various types of walkways are presented in Chapter 3 of the Phase 1 report. Several guidelines have been published in the US for pedestrian planning and design. Recommended references include: . Accessible Sidewalks and Street Crossings-An Informational Guide, US Department of Transportation, Federal Highway Administration, FHWA-SA-03- 019-provides summary information on making sidewalk corridors and street crossings accessible based on the US Access Board's draft guidelines, and includes a checklist (http://www.bikewalk.orq/pdfs/sopada fhwa.pdf). . Context Sensitive Solutions in Designing Major Urban Thoroughfares for Walkable Communities: An ITE Proposed Recommended Practise, Institute of Transportation Engineers, 2006-includes guidance on pedestrian-related design of the roadside and travelway, and intersections of major arterial roadways (http://www . ite .orq/bookstore/RP036. pdf) . Design and Safety of Pedestrian Facilities: A Recommended Practise of the Institute of Transporlation Engineers, Institute of Transportation Engineers, Traffic Engineering Council, March 1998-discusses guidelines for the design and safety of pedestrian facilities to provide safe and efficient opportunities for people to walk near streets and highways. Includes recommendations for roadway, sidewalk and path design, signing, signalization, crosswalks, refuge islands, grade-separated crossings, transit stops, work zones, and pedestrian environments near schools, in neighbourhoods and business districts ( http://safetv . fhwa. dot. qov /P ED B I KE/ docs/des i q nsafetv. pdf). . Guide for the Planning, Design and Operation of Pedestrian Facilities, American Association of Sate Highway and Transportation Officials (AASHTO), July 2004-covers characteristics of pedestrians, planning strategies, and facility design, operation and maintenance. These guidelines cover pedestrian-friendly features of public road rights-of-way as described below. Pedestrian street crossings at intersection and mid-block - Pedestrians want and need safe access to all destinations that are accessible to motorists. Pedestrians must be able to cross streets at regular intervals and should not be expected to go more than 100 m out of their way to take advantage of crossings locations. Alternative Treatments for At-grade Pedestrian Crossings CO) documented the state of the practice in innovative treatments for pedestrian accommodation for intersection and mid-block crossings. The report represents an inventory of over 70 pedestrian measures. The pedestrian measures included both "controlled" crossings (where pedestrians have the right of way) and "uncontrolled" (where approaching vehicles have the right of way). The report concludes: 20 Lalani, Nazir and the ITE Pedestrian and Bicycle Task Force, Alternative Treatments for At-Grade Pedestrian Crossings, Institute of Transportation Engineers, 2001 August 2008 Page 32 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN . Installing marked crosswalks, especially at uncontrolled locations, by striping two lines across the roadway and posting a single sign in advance of and at the crossing does not afford pedestrians effective protection from being struck by a vehicle while crossing in the marked crosswalk. This is especially the case on high-volume, multilane facilities . There are a number of higher-cost geometric design features, such as curb extensions and pedestrian refuge islands, that can be used to improve the safety of marked crosswalks, especially those on high-volume, multilane major streets Crosswalk markings should only be provided where motor vehicle traffic is regulated by traffic controls that give the right-of-way to pedestrians at that location. A traffic control signal does not necessarily provide safety for a pedestrian obeying the signal, especially when the pedestrian is crossing a lane with a permitted vehicular crossing movement, such as a permissive left turn on a green light or a right turn on a red light. Studies completed by the Region of Waterloo ON (21) determined that: . A crosswalk that is poorly defined can result in 4 to 10 times more vehicle/pedestrian conflicts . When drivers can see the crosswalk better, they seem more likely to respect the crosswalk as pedestrian space Exhibit 4.1: In-laid durable pavement marking, ladder pattern Source: Region of Waterloo Curb Return Radii-The design of the curb return at intersections revolves around the choice of design vehicle (frequent or infrequent larger vehicles), the dimensions that make up the approaching and receiving lanes, and the curb radius itself C2). Inadequate curb return radii should be avoided where large vehicles frequently turn that could potentially travel across the curb into the pedestrian waiting area at the intersection corner. 21 Button, N., Crosswalk Visibility and Pedestrian Safety, Region of Waterloo Report E-05-069, June 14, 2005. 22 Context Sensitive Solutions in Designing Major Urban Thoroughfares for Walkable Communities: An ITE Proposed Recommended Practice, Institute of Transportation Engineers, 2006 August 2008 Page 33 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN A Curb Extension is horizontal intrusion of the curb into the roadway resulting in a narrower section of roadway. The curb can be extended on one or both sides of a roadway to reduce its width to as little as 6.0 m for two-way traffic. They have been found to reduce vehicle speeds by 2 to 5 km/h C3). Curb extensions provide benefits to pedestrians by reducing the crossing distance, improving the sight distance and sight lines for both pedestrian and motorists, preventing parked cars from encroaching on the crosswalk, and create additional space for curb ramps and landings where the existing sidewalk space is narrow. 1- Pedestrian-friendly Channelized Right-turn Lanes-Design criteria for the radii of channelized right-turn roadways are a function of turning speeds, vehicle considerations, pedestrian crossing distances, and resulting island sizes. Objective of the pedestrian-friendly channelized right-turn lane are: . Reduce driver workload by reducing the angle of shoulder check and entry . Improve visibility of pedestrians by reducing viewing angle . Reduce turning speed to be more consistent with yield conditions that may require a full stop Exhibit 4.2: Channelized right-turn lane designed for pedestrians Preferred (right) compared to the conventional design (left). 23 Canadian Guide ta Neighbaurhaad Traffic Calming, Transportation Association of Canada and Institute of Transportation Engineers, 1998. August 2008 Page 34 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN Pedestrian Countdown Signals provide a numeric countdown display that indicates the number of seconds remaining for a pedestrian to complete the crossing of a street. Two cases studies in the US (24) note that most people misinterpret the meaning of the flashing "DON'T WALK" hand of the signal. In Monterey, CA, of those pedestrians interviewed, 870/0 said that having the pedestrian countdown device helped in understanding the pedestrian signals. In San Francisco, CA, 780/0 found then helpful compared to 340/0 who found the conventional pedestrian signals helpful. The number of pedestrians who finished crossing on red dropped from 14 to 90/0 at 8 intersections, the number of pedestrians running or aborting their crossing decreased from 130/0 to 80/0, and observed vehicle/pedestrian conflicts dropped from 60/0 to 40/0. Intersection Pedestrian Signal provides a device to assist pedestrians crossing major streets. The IPS includes standard traffic signal indications to control traffic on the major street; standard pedestrian "Walk" and "Don't Walk" indications, activated by push buttons, for pedestrians wishing to cross the major street; and stop signs for vehicles approaching the intersection from the minor street. The IPS is a more positive and effective pedestrian crossing device than a pedestrian crossover (PXO). It is also significantly less expensive to install and maintain compared to a full traffic sig nal. Pedestrian Refuge Islands are medians that are placed in the centre of the roadway separating opposing lanes of traffic. / They allow pedestrians to cross one direction of traffic at a time, with a location in the centre of the roadway to wait for a gap in traffic for the other direction. They are particularly suited for roadways with four to five lanes since the cognitive requirements to select a gap in traffic traveling in two direction in four lanes is considerably higher than that required for cross two lanes of traffic. It is recommended that the CBRM follow current design guidelines for the planning and design of pedestrian facilities that result in consistent pedestrian designs that address safety and comfort. The needs of pedestrians should be routinely considered in transportation projects, such as the planning and design of new collector and arterial roadways, and crossings of existing and future barriers, including waterways, railways, freeways and interchanges, including the ability of pedestrians to move along and cross the travelway. Consider a range of design features and elements to improve pedestrian safety and comfort including: . Crosswalk markings . Curb return radii . Curb extensions or bulb-outs . Pedestrian-friendly channelized right turn lanes 24 http://www.walkinqinfo.orq/pedsafe/casestudV.cfm?CS N U M=62 and http://www.walkinqinfo.orq/pedsafe/casestudV.cfm?CS N U M=63 August 2008 Page 35 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN t5 ~ 100 ..... QJ ra U '+- '+- :c 80 0 QJ QJ > U I.. C 0 60 ra ..... ...c 0 u E _VI > 40 c .c ra ..... 'i: :c 20 ..... VI ~ QJ "'C > 0 QJ I.. Q. ::J '2 32 km/h 48 km/h 85 64 km/h Speed of Motor Vehicle Source: Department of Transport (United Kingdom). "Killing Speed and Saving Lives." As reported in Oregon Department of transportation, Oregon Bicycle and Pedestrian Plan, 1995. Statistics show that there is safety in numbers. A motorist is less likely to collide with a person walking if more people walk C7). From comprehensive pedestrian collision analysis elsewhere (Region of Waterloo and City of Ottawa ON) the most prevalent collisions involving pedestrians occur when pedestrians are crossing the roadway regardless of location (mid-block or intersection) or traffic control (signal, stop, yield or no control). Pedestrians are almost 5 times less likely to be involved in a collision when walking on a sidewalk or roadway shoulder than when crossing the roadway. Signalized intersections where a right- or left-turning driver is failing to yield the right-of-way to a pedestrian in the crosswalk who has the "walk" or "flashing don't walk" signal is the most common collision. 4.1.4 SIDEWALK WIDTH The sidewalk needs to be at least 1.2 m wide for people using a guide dog, crutches or walkers, 1.5 m for wheelchair users to turn around and 1.8 m for them to pass other wheelchair users. In new urban or rural developments with more than 2.5 units/ha, sidewalks are generally recommended to be at least 1.5 m in width, with 1.8 m the desirable minimum along arterial roadways. Minimum sidewalk width for retrofitting sidewalks in existing neighbourhoods where the roadway will not be reconstructed or the right-of-way is constrained is an absolute minimum of 1.2 m wide, with 1.5 m preferred, and 1.8 m recommended along arterial roadways Wider sidewalks are required to accommodate pedestrian flows in areas where higher volumes of pedestrians are expected, such as central business districts and village cores. A sidewalk width of 2.4 m is recommended, or wider to meet desired pedestrian service levels based on volume. For streets in rural areas with less than 2.5 units/ha, 1.2 m wide shoulders on both sides of local streets are recommended but a sidewalk on one side is preferred. 27 Jacobsen, P.L. (2003). Safety in Numbers: More walkers and bicyclists, safer walking and biking. Injury Prevention 9, 205-209 August 2008 Page 37 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN 4.1.5 BUFFERS AND SIDEWALKS ADJACENT CURBS The North American guidelines recommend providing a buffer between pedestrians and moving traffic: landscaped boulevard, on-street parking, and bicycle lanes. The buffer can serve to provide for snow storage, splash protection for pedestrians, space for curb ramps, streetlight poles and other utilities, litter receptacle pick-up and traffic signs. The buffer can also provide space for plantings, benches and other pedestrian amenities. The recommended landscaped width is: . Local and collector streets: 0.6 to 1.2 m . Arterial streets: 1.5 to 1.8 m Buffer widths greater than 3 m in residential areas where there are driveways for low-density residential dwellings are not desirable. A car can park on the driveway within this space, sometimes overhanging the sidewalk affecting the function and aesthetics of the sidewalk and buffer system. Sidewalks that are flush against barrier curbs are recommended to be 1.8 m wide in residential areas and 2.4 m wide in commercial areas or along arterial roadways to allow for utility poles, and provide some separation from splashing from traffic, doors opening of curb-side parked cars, and snow storage. 4.1.6 LOCATION OF SIDEWALKS-NONE, ONE OR BOTH SIDES OF A ROADWAY? Generally, for new urban development, the North American guidelines recommend sidewalks on both sides of all industrial, commercial and residential streets including arterials, collectors and locals. For local streets, the residential density would be 10 units/ha or more (typical of urban areas). For rural residential densities from 2.5 to 10 units/ha, both sides of local streets is also preferred but one side is acceptable if constraints are documented. For less than 2.5 units/ha (rural areas), 1.2 m wide shoulders on both sides of local streets are recommended but a sidewalk on one side is preferred. It is recommended that the CBRM consider updating design criteria and policies with regard to the location of sidewalks and their width for new urban and rural development and infill development. Sidewalks should be provided on both sides of the street in urbanized areas. Though desirable, it is not feasible to require sidewalks on low volume streets that serve less than 20 houses. 4.1.7 AN ACCESSIBLE PEDESTRIAN SYSTEM On December 12, 2007, the Nova Scotia Liberals introduced Bill No. 121-Accessibility for Persons' with Disabilities Act. The Bill would require the Disabled Persons' Commission to study an Ontario statute (Ontarians with Disabilities Act) relating to accessibility for persons with disabilities and to prepare a report to be completed by December 31 , 2008 recommending a timetable for development of legislation and implementation of programs in Nova Scotia. Pedestrians can be affected by mobility, hearing, visual, and cognitive impairments. These pedestrians can become disabled in their environment unless it is designed to be accessible. Details make a difference-sidewalk and street crossing designs are evolving to create barrier-free, walkable communities August 2008 Page 38 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN Elements to incorporate into sidewalks and street crossings to make them accessible are presented below C8). Note that there are currently no comprehensive national guidelines in Canada. Additional justification and design details are provided in the reference. Sidewalks in the pedestrian travel zone (Exhibits 4.4 and 4.5): . Width-1.5 m is required for a wheelchair to turnaround, and 1.8 m to pass other wheelchairs . Grade-a maximum of 50/0 is recommended, however, this can be difficult to control since sidewalks follow streets that sometimes have grades in excess of 50/0. A level landing can be provided every 9 m for excessive grades (maximum of 8.30/0). The landing is recommended to be 1.5 m square with a slope not greater than 20/0 in any direction . Cross slope-The maximum cross slope recommended is 20/0. A sidewalk with a steep cross slope can be modified to provide a level area 0.9 m wide within the width of the sidewalk, or the height of the curb can be increased but with potential impacts to on-street parking and curb ramp design . Surface-concrete and asphalt provide firm, stable and fairly slip-resistant surfaces when dry. Concrete is recommended to be broom finished to increase slip resistance. Consistent colour and texture aid the visually impaired who may not be able to distinguish a change in colour or texture from a drop-off or change in level. Texture should not include more than a 6 mm rise every 75 mm for those with mobility aids. Textured surfaces can make it difficult for pedestrians with visual impairments to identify detectable warnings at the transition from the sidewalk to the street. Smooth walkways with brick trim are recommended to identify the pedestrian travel area within the overall pedestrian zone of a street or plaza . Elevation-As with texture, changes in level or vertical rises in sidewalks should not exceed 6 mm; from 6 to 13 mm the surface can be beveled with a maximum grade of 500/0 (1 :2); and greater than 13 mm a ramp with a maximum grade of 8.30/0 is needed to address the vertical rise 28 u.s. Department of Transportation, Federal Highway Administration, "Accessible Sidewalk and Street Crossings-an information guide, HW A-SA-03-0 19. August 2008 Page 39 181 GROUP FINAL REPORT August 2008 Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN Exhibit 4.4: Sidewalk Corridor Zones 1_ ~i~ .1 '~"yf~~. .1 ~el,db Z,(a(!l ~$tr.1af.i ,~t!l LolaD ~iQ1...tb ~ The sidewalk corridor zone system consists of the curb zone, furniture or buffer zone, pedestrian travel zone and frontage zone. Page 40 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN Exhibit 4.5: Sidewalks and Street Furniture .a...; e! -- J : I :_. ..L~. l .,: .~ ~ I S 'i' :r ]: ~ ~ .. :r .~- _' 1 I Exhibit 4.6: Sidewalk Encroachments ;: ") ~~ j,~ ~\! ",Yp )) ~~~V\~'V~ ~L -J"~-l ~ '"'1 { f 1~~C ~vJ ~'0t~ ~r ~l\ 2.030 nl t (80 in) 685 mm (27 in) 101mm -1- (4 in) max Objects located between O. 7 m and 2.0 m from the ground should not protrude more than 7100 mm Protruding objects into the sidewalk corridor (Exhibit 4.6)-Objects above 2 m in height over the pedestrian travel zone are not a problem for pedestrians with visual impairments. They can usually detect objects with a long cane under 0.7 m in height. However, objects that protrude between 0.7 and 2.0 m over the pedestrian travel zone but do not extend to the ground are more difficult to detect and avoid. Objects mounted on a wall, post or side of a building should not protrude more than 0.1 m into the sidewalk corridor or pedestrian travel zone. August 2008 Page 41 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN Sidewalks at driveway crossings-The characteristics of an accessible sidewalk should continue through a driveway, including a cross slope not greater than 20/0, level maneuvering space, changes in level not to exceed 6 mm and a maximum flare slope of 100/0. Ideally the change in grade of the driveway to match the street grade occurs outside the sidewalk or pedestrian travel zone, between the sidewalk and the street. If this is not possible, the level sidewalk can be jogged away from the street providing a greater width over which to provide the driveway ramp. Curb ramps at street crossings-These are necessary to provide access from the sidewalk to the street for pedestrians who use wheelchairs and other mobility devices. However, they can create barriers for people with vision impairments who use the curb to identify the transition between the sidewalk and the street. Detectable warnings are installed to mark the boundary between the sidewalk and the street where the vertical edge of the curb is eliminated by the curb ramp. Curb ramp types include: . Perpendicular-two ramps per corner aligned with the crosswalk. On small radius corners, the path of travel from the ramps through the crosswalk is straight. On larger radius corners, this path may not be straight . Diagonal-not recommended. Wheelchair users are directed into the intersection and must turn at both the top and the bottom of the ramp. Pedestrians with vision impairments can mistake a diagonal ramp for a parallel ramp and unintentionally travel into the intersection since it is not aligned with the crosswalk. If the corner radius is tight, the level landing area at the bottom of the ramp where the wheelchair user must maneuver towards the direction of the crosswalk may be within the travel path of motorists proceeding parallel to the crosswalk . Parallel-on narrow sidewalks the sidewalk itself is ramped down to a level landing. Pedestrians on the sidewalk (not crossing) must negotiate two ramps . Combination parallel and perpendicular-the sidewalk is partially ramped to reduce the length of the perpendicular ramp to provide a level maneuvering area at the top of the ramp. Pedestrians on the sidewalk (not crossing) must negotiate two ramps . Depressed corners-eliminate the need for curb ramps. Design details are required to prevent larger vehicles from travel onto the sidewalk when turning and to define the boundary between the sidewalk and street Design elements of curb ramps include the following: . Ramp grade-maximum of 8.30/0, however, 7.1 % is recommended to allow for construction tolerances . Cross slope-not to exceed 20/0 . Ramp width-minimum of 1.2 m, but 0.9 m is acceptable in restricted spaces where a ramp is being retrofitted . Grade changes-the change in grade between the ramp and the gutter/street must be 130/0 or less to prevent wheelchair users from being pitched forward or thrown backwards August 2008 Page 42 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN . Curb ramp alignment (Exhibit 4.7)-align perpendicular to the curb face and parallel to the direction of travel within the crosswalk. This results in a straight path of travel from the top of the ramp to the roadway, through the crosswalk, to the curb ramp on the other side and to the top of that ramp Exhibit 4.7: Curb Ramps The curb ramp alignment is such that the wheelchair user is directed outside the crossing area in order to access it. Curb ramps must be perpendicular to the curb and should align with the crosswalk. www.pedbikeimages.org / Dan Burden . Detectable warnings for vision-impaired pedestrians-A 600 mm wide strip of detectable warnings is installed across the full width of the ramp at the bottom of the ramp setback 150 to 200 mm from the bottom edge of the ramp. It indicates to the visually impaired pedestrian the transition from the sidewalk to the street (see subsequent sections) . Transition points-Less than a 13 mm change in level between adjacent curb ramp surfaces . Sidewalk approach width-minimum of 1.2 m August 2008 Page 43 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN . level landing-required at the top and bottom of the curb ramp, 1.2 m by 1.2 m in size and a cross slope of not more than 20/0 in any direction. The absolute minimum landing width is 0.9 m however, the slope of the curb ramp flare must not exceed 8.30/0 in order to allow wheelchair users to travel over a portion of the flare to move between the ramp and the sidewalk . Drainage-adequate drainage is required to prevent water and debris from accumulating at the bottom of the ramp Detectable warnings (Exhibit 4.8)-standardized surface feature built in or applied to walking surfaces to warn visually impaired pedestrians of potential hazards. In particular, detectable warnings are placed at the bottom of curb ramps, at depressed intersection corners, raised crosswalks and intersections, the edge of transit platforms, and railroad tracks that cross sidewalks. In the US, the only approved detectable warnings consist of a surface of truncated domes aligned in a grid pattern-dome base diameter 23 to 26 mm, top diameter 50 to 600/0 of base diameter, height 5 mm, centre-to-centre spacing of 40 to 60 mm, and visual contrast of light on dark or dark on light with adjacent walking surfaces. Grooves in curb ramps are specified in some standards publications but are not allowed in the US for they have been deem undetectable and confusing. Pedestrians cannot always detect them underfoot and can confuse them with sidewalk expansion joints and cracks. Testing of the installation and maintenance of truncated dome surfaces is on-going by various jurisdictions. In particular, testing by the Vermont Agency of Transportation considers the durability of truncated domes under winter maintenance conditions. Exhibit 4.8: Detectable Warnings ~ ~~~~.~. ::J';'~~:~;;;~t~t ~;:' -~~. · ". A '" < \.~,;;;:, .' --..., " -- -, ....,-- ~ .,r Example of cast-in-place truncated dome panels in a curb ramp (Vermont Agency of Transportation) Accessible Pedestrian Signals-Audible pedestrian signals (APS) provide a service to the visually impaired pedestrian who find it difficult to cross roads at signalized intersections. They August 2008 Page 44 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN provide users with information on when they have the right-of-way to cross a street, and in which direction they may cross an intersection. The visually impaired pedestrian has to determine C9): 1. Am I at an intersection? 2. What controls traffic flow at this intersection? 3. Has the pedestrian (WALK) interval started? They rely on the sound or sense of traffic to identify a time when traffic has stopped and crossing the street is possible. This is difficult when traffic volumes are low or there is an advance green signal phase is provided for left-turning traffic. They may also delay the start of their crossing, relying on the surge of traffic as a cue, and not complete the crossing within WALK/Flashing DON'T WALK interval. Canadian National Institute for the Blind (CNIB) recommends that the installation of APS be a priority at signalized intersections with the following characteristics: . Pedestrian-activated WALK signal . Lead pedestrian phase . Advance left-turn phase . Mid-block crossings . T -intersections The CNIB also supports an implementation strategy that includes APS in all new and rebuilt traffic control signal installations. Accessible Pedestrian Signals-National Guidelines for the Understanding, Use and Implementation is available from the Transportation Association of Canada (TAC). 4.1.8 ACCESSIBLE PEDESTRIAN ZONE Sidewalks, particularly in commercial areas, can be obstructed by street furniture such as benches, as well as encroachments such as sandwich board signs, newspaper stands, litter receptacles, mail boxes, private patios, bicycle racks, planters, etc. In addition, the surface of the sidewalk is sometimes constructed of materials and patterns other than broom-finished concrete. These materials can result in rough textures or varying colours that are difficult for pedestrians with disabilities to move along. For example, interlocking brick can be very uncomfortable for or even overturn someone in a wheelchair, and changes in surface colour can appear as a change in level (step) for someone with visual impairments. The City of Saskatoon SK has developed an accessible pedestrian zone, a clear and unencumbered walking area, in the downtown consisting of a minimum 1.8 m wide sidewalk with defined edges generally offset 0.5 m from the front of stores and at least 0.5 m or more from the roadway. A by-law prohibits obstructing this area and local shop owners know that sandwich board signs, patio furniture, etc. are to remain outside the sidewalk. It creates a highly functioning, accessible sidewalk. 29 The Canadian National Institute for the Blind, CNIB Position for Accessible Pedestrian Signals in Canada, October 15, 2003 August 2008 Page 45 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN To maintain an accessible sidewalk, the recommended sidewalk widths provided above should consist of broom-finished concrete with a defined edge. The defined edge may be a barrier curb or a material of differing texture such as a grass boulevard. The boulevard or planter/furniture zone adjacent this pedestrian zone can vary from this material/finish, such as a grass, vegetation, stamped concrete, interlocking pavers, painted surfaces, stone, etc. The concrete sidewalk becomes a defined area that adjacent property owners realize must be kept clear of all obstructions including signs, street furniture, newspaper boxes, etc. Even through public or publicly-accessible plazas, mailbox station areas and transit stops, and adjacent benches and drinking fountains, a pedestrian travel zone should be defined by a concrete sidewalk. The remaining walking surfaces can be of alternative, hard surface materials. A concrete building frontage zone is recommended in commercial areas adjacent the sidewalk as a buffer between the pedestrian travel zone and any buildings, fences or landscaping. It should be a minimum of 0.6 m wide. In commercial areas, the building frontage zone should be wider to allow for doors opening, sidewalk cafes, etc. Level, concrete landings are required in the frontage zone at building entrances. This may be difficult to achieve in retrofitting sidewalks along existing development but an attempt should be made to do so. It is recommended that the CBRM consider adopting accessible sidewalk design guidelines to further enhance pedestrian accessibility along and crossing roadways, and accessible pedestrian zones through business districts. 4.1.9 PRIORITIZATION OF SIDEWALK RETROFITS The resources available for transportation projects, particularly pedestrian projects, are typically limited. As a result, it is important for funding decisions to be made based on which projects provide the greatest possible public benefit in the most efficient way. In addressing sidewalk deficiencies-gaps in existing sidewalks, sidewalks in poor condition that warrant replacement, and areas that were developed without sidewalks-a prioritization program can help to identify those area in greatest need to serve existing or inherent pedestrian demand. Such programs can be applied region-wide or by district / electoral areas. The sidewalk prioritization programs for London and Ottawa ON, Edmonton AB, Charlotte NC and Portland OR were reviewed. A summary of the criteria used in these communities is provided in Appendix A in the Phase 2 Report. While some programs use a relatively simple matrix and descriptive criteria to rank potential projects, others require more detailed information such as Annual Average Weekday Traffic volume and distance to a pedestrian generator / destination. One program, proposed in the City of Edmonton Sidewalk Strategy, is directly integrated into the City's infrastructure and data management GIS, allowing for coordinated planning and efficiencies in completing sidewalk rehabilitation, construction and planning. It is recommended that the Cape Breton Regional Municipality develop a New Sidewalk Prioritization Program that includes some of the following key criteria: . If the project connects two significant pedestrian generators I destinations (e.g. schools, parks, shopping districts). . Traffic volume and speed limit . If the project is part of a continuous network or an isolated segment. . Evidence of a missing link (e.g. worn path). August 2008 Page 46 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN . Presence of walking hazards (e.g. hills, poor sightlines, retaining walls). . If the project could be rerouted to another funding program (e.g. neighbourhood redevelopment). Additional criteria suited to the more rural areas of CBRM should also be included, such as: . Presence I absence of a paved shoulder-a sidewalk may be less urgent where a paved shoulder is present . Road right-of-way width-is there room to accommodate a sidewalk? . Roadway lane width - could the lane widths be reduced to accommodate a sidewalk? . Distance to a single pedestrian generator I destination - where pedestrian destinations are separated by long distances (e.g. rural schools), linking two destinations is impractical. Instead, the criteria could consider distance to a single pedestrian generator I destination (e.g. within 1000 m of a school). 4.1.1 OWINTER SIDEWALK MAINTENANCE The condition of sidewalks in CBRM during the winter, i.e. snow and ice accumulation, has been identified by members of the public as an important issue. At the first series of Public Information Events for the AT Plan in November 2007 at which approximately 180 people were engaged, 15 people commented that sidewalks need to be maintained in the winter. This issue ranked third behind providing more bikeways (30 comments) and trails (22 comments). CBRM's Current Policy and Practices CBRM currently plows designated sidewalks, giving priority to areas of high volumes of traffic or those close to schools, hospitals and commercial districts. Council approved a Winter Operations Strategy on November 25, 2003. The strategy reports that the general objective for sidewalk plowing/de-icing is to make an effort to provide access for pedestrians, but due to physical and financial constraints, it is not feasible to plow snow from all sidewalks. Therefore, sidewalks are designated by the Public Works Manger of Operations as primary or secondary, continuous routes. In urban areas, the CBRM plows the sidewalks. In the rural areas, the sidewalks are generally maintained by contract. Routine inspections are used to determine the need for salting or sanding. Priority I sidewalks are plowed as soon as street plowing procedures permit. Initial efforts are focused on sidewalks in designated commercial areas, followed by schools and hospitals. Work may be performed outside regular hours. Priority II sidewalks are attempted during regular hours after Priority I routes are completed. Property owners are encouraged to clear sidewalks around their property but there are no by-laws requiring them to do so. Property owners may not pile snow and ice from their property onto the street or sidewalk as prohibited by CBRM's Streets By-laws T1: . No person shall obstruct any street or sidewalk in the Regional Municipality in any fashion whatsoever. This shall include, but not be limited to, placing snow in or upon any street or sidewalk in the Regional Municipality so as to cause any impediment to foot or vehicular passage, parking or traffic. August 2008 Page 47 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN CBRM publishes a brochure, Snow and Ice Control-Who plows my road?, on their web site to inform the public about the CBRM's winter operations strategy. Practices in other Communities The population, population density and average annual snowfall were used to identify similar municipalities in Canada and determine their sidewalk snow clearing policies and practices. The population and snowfall statistics for various communities are provided in Exhibit 4.9. The table also indicates which of these communities have transportation demand management (TDM), active transportation (A TP), or pedestrian plans. Exhibit 4.9: Population, Population Density and Snowfall for Municipalities Similar to CBRM - - . Population Population Density per Yearly Snowfall TDM, AT or Pedestrian Municipality (2006)* km2 (2006)* (cm)** Plans Exists CBRM NS II 102,250 42.0 298.3 AT Moncton NB II 64, 128 454.3 349.9 AT St. John NB II 68,043 215.7 256.9 Prince George BC II 70,981 224.6 216.1 Pedestrian Plan Waterloo ON II 97,475 1,520.7 159.5 TOM (Regional) St. John's NL 100,646 225.6 322.3 Cambridge ON 120,371 1,066.5 127.7 TOM (Regional) Greater Sudbury II 157,857 49.3 274.4 ON Halifax NS 372,679 67.9 230.5 TOM, AT Edmonton AB 780,372 1,067.2 121.4 Sidewalk Strateg~y_( on-going) Calgary AB 988,193 1,360.2 126.7 TOM Toronto ON 2,503,281 3972.4 133.1 Pedestrian Charter * Statistics Canada 2006 Census ** Canadian Climate Normals 1971-2000 The sidewalk snow clearing policies and practices for each municipality are described in Appendix B in the Phase 2 Report. In general, many of these communities have by-laws that require abutting land owners to clear sidewalks of snow and ice, and offer information on community programs that assist people with impairments or seniors that are unable to do the work. Clearing is to occur within 24 to 48 hours, with enforcement consisting of warnings, then fines or charges for the municipality to clear the walk. Cambridge ON adopted their by-law as recently as 2005. Some of those that do not have such a by-law, clear sidewalks in priority areas and publish maps on where these are located. Sidewalk winter maintenance is key to enabling citizens of CBRM to be active all year and provides basic accessibility for pedestrians who depend on walking with or without mobility devices for transportation. It is recommended that the CBRM consider the following: . A review of their current sidewalk and curb ramp snow and ice clearing practices, in particular, focusing on the viability of mandating the responsibility to abutting property owners in urban and suburban areas. This review should consider issues such as: . Financial implications August 2008 Page 48 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN . Enforcement requirements . Affect on less able-bodied citizens in CBRM that would be unable to clear the sidewalks, including the capacity of CBRM and community social organizations to provide support to them . Snow storage requirements . Service and response levels . Publishing maps of the sidewalks that are currently their responsibility to clear of snow and ice so that pedestrians can plan their routes to avoid sidewalks that are not cleared 4.2 Bikeway Planning, Design and Maintenance 4.2.1 REFERENCES The various types of bikeways are presented in Chapter 3.5 of this report. Various guidelines have been published in North America for the planning and design of bikeways. Recommended references include: . Bikeway Traffic Control Guidelines for Canada, Transportation Association of Canada, December 1998-includes recommendations on regulatory, warning, guide, information, and temporary conditions signs, and pavement markings for bikeways within public road rights-of-way. . Guidelines for the Design and Application of Bikeway Pavement Markings, Transportation Association of Canada (to be published in 2008/09)-provides guidance in the application of bikeway pavement markings, such as the bicycle with chevrons shared-use lane marking ("sharrow"), bike lane markings through intersections and interchanges, contra-flow bike lanes on one-way streets, multi- use trail crossings of roadways at intersections and mid-block, bike lanes at roundabouts, bikeway markings at traffic calming devices, and bicycle detection markings at signals. . Guide for the Development of Bicycle Facilities, American Association of State Highway and Transportation Officials (AASTHO), 1999-provides guidance in the planning, design, operation and maintenance of bikeways, including shared roadways, signed routes, bike lanes, and shared-use paths. . Technical Handbook of Bikeway Design, 2nd edition, Velo Quebec, 2003- provides guidance on bicycle traffic and land-use planning, types of bikeways, bikeway planning and geometric design, construction, multi-use trails, bicycle parking, bicycles and public transportation, and operation of bikeways. It is recommended that the CBRM follow current design guidelines for the planning, design, signing and marking of bikeways that result in consistent bikeway designs that address cycling safety and comfort. The needs of cyclists should be routinely considered in transportation projects, such as the planning and design of new collector and arterial roadways, and crossings of existing and future barriers, including waterways, railways, freeways and interchanges. August 2008 Page 49 181 GROUP FINAL REPORT 4.2.2 BENEFITS OF PAVED SHOULDERS Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN Adding or improving paved shoulders can extend the service life of the roadway surface, provide a breakdown area for motor vehicles, reduce crashes, and accommodate cyclists in rural areas. The recommended width of a paved shoulder is 1.2 m to accommodate cyclists; however, any additional paved shoulder width is better than none at all. Additional shoulder width is desirable if speeds are high (> 80 km/h) or there are a high volume of truck, bus or recreational vehicle traffic. Data from the 1970s and 1980s on the benefit / cost analysis of rural roadways considering maintenance savings and crash reductions, recommended 0.9 m wide paved shoulders on highways with Average Annual Daily Traffic (AADT) of 1,000 to 2,000 vehicles. Although these data are out of date, many bike plans still consider the threshold for provision of paved shoulders on rural roadways to be around 2,000 to 3,000 vehicles per day. 4.2.3 NEW TOOLS Bicycle Priority Streets Bicycle priority streets, also known as "bikeway boulevards" are local streets that function as through streets for cyclists while maintaining access for local residents. Traffic calming features are implemented to control traffic speeds and discourage through motorists. Traffic controls (signals, stop signs, traffic circles and yield signs) are placed to control conflicts with motorists and give priority to cyclists. Bicycle route and destination signage provides useful information and help cyclists find the route while alerting motorists. Shared-use lane Marking The shared-use lane marking or "sharrow" is a symbol placed on the pavement in the intended area of bicycle travel. It raises the awareness to both cyclists and motorists of the correct cyclist positioning in the lane. It can be used in the following applications: On roads that are not wide enough for a dedicated bicycle lane but wide enough for cyclists and motorists to operate side-by-side, such as wide curb lanes (> 4 m) . . On roadways with on-street parking to position the cyclist outside the door zone of the parked vehicles For short sections of roadways (< 500 m) that are two narrow for cyclists and motorists to share (< 4 m) when speeds are 50 km/h or less to indicate that the cyclists can ride in the middle of the lane . . To correctly position cyclists at intersections where there is a mandatory right- turn only lane and insufficient width for a bike lane August 2008 Page 50 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN Before and after studies in San Francisco CA CO) indicated a 40/0 drop in sidewalk riding, an increase in the distance between cyclists and parked cars from 1.02 m to 1.22 m, and an increase in the distance between cyclists and cars in the travel lane from 0.79 m to 1.47 m. The Transportation Association of Canada will be including the shared-use lane marking in their bikeway pavement markings guideline update. The "sharrow" will make wide curb lanes and cycling adjacent parked cars more visible to the travelling public and increase cycling safety and comfort on roadways that are not quite wide enough for bike lanes. Road Diets "Road diets" are conversions of generally four-lane roadways into three lanes (two through lanes and a centre, two-way left-turn lane). The four lanes is converted to bicycle lanes (one in each direction), or sidewalks or on-street parking. That is, the existing roadway space is reallocated. Research in North America has shown that for roadways with Average Annual Daily Traffic (AADT) of 20,000 vehicles or less, road diets have minimal effects on vehicle capacity because the left- turning vehicles are moved into the centre turn lane. Road diets have been implemented on roadways with higher volumes, up to 30,000 AADT, some seeing an increase, some remaining the same and some seeing a decrease in volume after implementation. Studies in Iowa (31) of 15 sites indicate a drop in crash frequency and severity of injuries after the conversions. A report on nine conversions in Seattle WA C2) indicates a 34010 decrease in the number of collisions and a 7010 decrease in the number of fatal and injury collisions. The Federal Highway Administration reported that road diets were no better or worse than comparison sites with regard to crash severity and one may expect a 6010 decrease in total crashes.33 The advantages to cyclists and pedestrians are significant, including providing more room on the road to increase cycling safety and comfort, creating a buffer between motorists and pedestrians, and reducing the number of lanes that a pedestrian must cross. 4.2.4 SIGNAGE STRATEGIES The Bikeway Traffic Control Guidelines for Canada indicates that bikeway guide and informational signs convey information to cyclists for route selection, for locating off-road facilities, or for identifying geographical features or points of interests. These Guidelines indicate that on shared rights-of-way, separate signing for cyclists is not necessary, however, guide and informational signs are intended to help cyclists find their way in unfamiliar areas and provide insight into the coherence of a network of bikeway routes. Street name signposting, and guide and informational signs for motorized traffic are not ideal from the cyclist's viewpoint, in terms of positioning and information: . Some bikeways are designed to take advantage of low traffic speeds or volumes, or scenic routes and as such may not remain on any given street. The bike route will take turns and short-cuts not intended for motorist but of great 30 Alta Planning + Design, "San Francisco' Shared Lane Pavement Markings: Improving Bicycle Safety", Final report, San Francisco Department of Parking & Traffic, February 2004. 31 Stout, Thomas B, Michael Pawlovich, Reginald R. Souleyrette, and Alicia Carriquiry, "Safety Impacts of "Road Diets" in Iowa", 2005. 32 Burden, Dan, and Peter Lagerwey, "Road Diets: Fixing the Big Roads", Walkable Communities Inc., March 1999 33 Huang, Herman F., J. Richard Stewart, and Charles V. Zegeer, "Evaluation of Lane Reduction "Road Diet" Measures and Their Effects on Crashes and Injuries", Highway Safety Information System, US Department of Transportation, Federal Highway Administration, Transportation Research Record 1784. August 2008 Page 51 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN advantage to cyclists. Separate signing of these routes are required for way- finding. . Cyclists generally travel shorter distances than motorists and are more concerned with direct connections to destinations within those smaller areas. They may require information on the exact route to the frontage of the property or building that is bicycle-accessible. For example, circulating by bike around a shopping or transit centre to find bike parking or bicycle lockers could be very frustrati ng. . Time and distance along bike routes to destinations can indicate to the traveling public that the trip is quite manageable by bicycle. . Advance signing for a cyclist on a roadway or trail approaching a roadway with a bike lane, wide lane, or other type of bikeway on it is needed. The cyclist will not be aware that the bikeway exists until they pass through the intersection. In fact, they may not detect the bikeway at all unless they are looking sideways as they travel through the intersection. If they do detect it at the intersection, they may not be in a position that allows them to turn directly onto the bikeway, and then will have to expend additional personal energy to go out of their way to turn around. A coherent and consistent system of way-finding signs for cyclists is lacking in Canada. Some of the shortcomings of bicycle route signage programs include: . Signs are inconsistently implemented across a network such that some routes are well marked and others are not . Useful information from a cyclist's perspective, such as destinations, directions, distances, amenities, is lacking or inconsistent across a network . Signs are not maintained on an annual or as-needed basis with signs disappearing over time . Initial implementation of bicycle route network signage is not continued as the network expands over time such that older sections are signed and newer sections are not. The reverse can also happen if older signs are not maintained but newer signs are installed as the network expands. . Sign placement is poor so that it is not easily visible to cyclists. . Signage types are lacking, i.e., route confirmation signs at regular intervals, change in route direction signs, intersection signs of two or more bicycle routes, advance or access signs from major roadways or trails to bicycle routes Examples of bicycle route signage are provided in Exhibit 4.10. August 2008 Page 52 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN Exhibit 4.10: Examples of Bikeway Signage Not very useful without additional information about the bicycle route network. Note that T AC's recommended Bicycle Route Marker Sign includes the word "ROUTE" below the bicycle sym bol. Photo by Richard Ordul Bicycle route marker sign with destinations Plus direction at decision points in the bicycle route network. Photo by Richard Ordul Additional information provided includes direction, distance and average time by bicycle at decision points in the bicycle route network. Photo by Richard Ordul August 2008 Page 53 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN Exhibit 4.10: Examples of Bikeway Signage (Cont'd) Additional information provided includes cardinal direction. ~ Street name blade with bicycle logo Identifies a street as a bikeway to cyclists and motorists. Photo by Richard Ordul Identifies the street as a priority street for cyclists with a route name and includes destinations, distances and directions. Photo from City of Berkley, CA August 2008 - ~ - --;-.:""'" - ;:--- Page 54 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN Exhibit 4.10: Examples of Bikeway Signage (Cont'd) Includes region name, node number, destinations, directions, distances, amenities, and map. Includes destinations, directions, distances, and amenities. Bicycle route signage in CBRM will be important for integrating the system of intracommunity bicycle routes with the intercommunicty routes to form an overall network. CBRM will need to examine which signage strategy will work within the resources available to implement and maintain the signs. It should be easy to integrate into bicycle route maps, and address the features described above such as route confirmation, route intersections, advance route signing, destinations, directions, distances (or time), and amenities. Consistency with Provincial sign design principles is also recommended. Recognizing the different needs of cyclists for way-finding compared to motorists, it is recommended that CBRM develop a strategy in partnership with the Province and adjacent municipalities to sign the bikeways in such a way that the network is more visible to cyclists and the traveling public, and the signs communicate the network's connectedness, destinations and distances or travel time. August 2008 Page 55 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN 4.2.5 BIKEWAY MAINTENANCE Proper maintenance is paramount to providing cyclists with a quality experience that will ensure continued use. The characteristics of bicycles, such as lightweight with relatively narrow tires, make them more susceptible to irregularities in roadway conditions than motor vehicles. Deterioration of the roadway surface, such as potholes or cracking and debris near the curb increases the potential for cyclist injury. In an informal survey on cycling facility maintenance conducted three years ago, preventative or proactive maintenance, especially with regard to surface condition, signing, trash and vandalism was cited as a key to the success of delivering an effective, well-used cycling network. Although it may represent additional time and operating costs, it has been demonstrated that reorganizing existing maintenance priorities can contribute significantly to an effective maintenance program. During the winter months, snow and ice should be regularly removed from cycling facilities; likewise with leaves in the fall, and dirt and debris in the summer. The cycling season, in particular for more for fair-weather cyclists can be extended if bikeways are either included on major roadways that are high priorities for sweeping and snow clearing, or spring sweeping programs are re-organized (a no- cost activity) such that roadways with bikeways are a priority. Cycling-specific, road-repair reporting programs such as telephone "hotlines", web site e-mail links, and postcards are used by various municipalities to allow cyclists to report road conditions that are hazardous. These require resources to not only collect the information but also to confirm and act upon the maintenance request. Such a program, dealing exclusively with cycling-related roadway issues becomes increasingly important as a cycling network is expanded. Recognizing the importance of the maintenance of bikeways to the comfort and safety of cyclists, it is recommended that CBRM review current maintenance practices and priorities of on-road bikeways and multi-use pathways critical to the AT network. Consider adjustments to practices so that the highest reasonable standard of bikeway maintenance can be achieved. Include a review of strategies to maintain infrastructure condition (pot holes, cracks, utility cover elevations, and road cut repairs), surface condition (debris, water ponding, snow and ice), bicycle detection when traffic detection is present at traffic control signals, and bikeway network signs and pavement markings. Collaborate with the Province of Nova Scotia with the goal of developing consistent maintenance standards, regardless of jurisdiction. Consider the need for a road-repair reporting system so that cyclists can request maintenance and track follow-up. 4.2.6 CONSIDERATIONS FOR MULTI-USE TRAILS Since cyclists will be encouraged to use multi-use trails in the Active Transportation Network, it is important that they be designed with the operation of a bicycle in mind. Most importantly, mutli-use trails should conform to minimum guidelines acceptable for two-way bicycle traffic. These guidelines are generally based on a design speed (i.e. 30 km/hr for asphalt pathways with a gradient of less than 40/0, 25 km/hr for granular pathways with a gradient of less than 4010, 50 km/hr for asphalt pathways with a gradient greater than 4010 and 40 km/hr for granular pathways with a gradient greater than 40/0). With design speed in mind, some key pathway design characteristics to be examined are: . Pathway width . Horizontal and vertical pathway alignment . Clear zone adjacent to pathways August 2008 Page 56 181 GROUP FINAL REPORT . Pathway signage and its location/placement . Pathway surface Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN Guidelines such as the Guide for the Development of Bicycle Facilities, American Association of State Highway and Transportation Officials (AASTHO), 1999 should be consulted. Pathway surfaces can include granular (i.e. limestone screenings/stonedust) or asphalt. Factors such as the known or anticipated volume of use, longitudinal gradient and character of the surroundings should be considered when determining the surface type. Pathway maintenance during spring, summer and autumn seasons should include a regular schedule of inspection, sweeping (asphalt) and grading (granular). Maintenance during winter months may be considered for some pathways critical to the Active Transportation Network, and this could be based on criteria such as volume of winter cyclists, location (i.e. pathway serving major destination(s), and proximity of alternative on-road route. Where pathways are not maintained during winter months, they should be appropriately signed. 4.3 AT-supportive Site Design Guidance Recent decades of urban development in North America have led to a general reliance on personal vehicles for commuting, recreational and other personal travel, which has had arguably improved mobility and accessibility- but not without negative impacts to natural, economic and social environments. Many jurisdictions and municipalities are actively responding to this undesirable situation through land-use planning, transit system improvements, pedestrian safety initiatives, bicycle system plans, transportation demand management (TDM) programs and smart growth initiatives. However, these strategies are generally aimed at transportation infrastructure, high-level land-use or funding issues. They tend to offer little guidance to development planning and review processes such as site design. Recognizing this gap in consolidated information and guidelines relating to site design practices that promote sustainable transportation, the Canadian Institute of Transportation Engineers (CITE) created Promoting Sustainable Transportation Through Site Design. This document was developed to provide planning authorities and the land development industry with site design practices and planning processes that help promote sustainable transportation. Drawing on the CITE Guideline, for which IBI Group was the lead author, this section provides suggested practices that would be applicable in CBRM for improving site design for active transportation. 4.3.1 SITE ORGANIZATION Site organization is one of the first stages of site design and has a significant impact on elements that affect sustainable transportation. Typical decisions that are made at this stage include building location and placement, parking lot size and configuration (e.g. at grade, above, grade or below grade) and entrance locations. August 2008 Page 57 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN Some of the design considerations made at this initial stage of site design that would help to create better environments for active transportation include: . Ensuring Building parallel to the street and at a consistent set back provides a well defined public edge . Animating the pubic sidewalk with street front uses . Locating ancillary uses (e.g. daycares, convenience stores, etc.) closest to potential users . Locating the highest density uses close to intersections. . Providing building entrances close to street and transit stops in order to animate the street and minimize walking distances . Constructing mixed-use development to allow people to live near work. . Minimizing parking supply to provide opportunities for other uses such as parks while discouraging auto use . Locating surface parking to the rear of site, away from pedestrian activities It is recommended that CBRM develop and adopt guidelines for site design incorporating the above considerations. Exhibit 4.11: Typical vs. Model Site layout ---JJ l~~ r.;rt- ~ ~- Q. ~ ___. ~.HBJHU~\,UlD im. ~ J41.!U'l'm:! m;. ~~~ = . = ~~ ~.~..,'. rr~~'-.. ..~l r~ ~ ~~,".--.m ~ EC!I =S.;:_~_ TYPICAL RETAIL TYpical 'Hut-stDry ,'eMil dC~tfld()pmellt wltb 4.5 spacC-.<t; p(,r 1,000 $q. ft. Ihls a. floor are" 1wtiv of 0.25. [~ bJC7'eMitlg tbe iJcight to hpo st01.i~s EI/(mg (me street !Iud prulJz'ding 3.5 splIces per 1,(JOO $q. ft; do-ubl.t! flu floor Elt'Cd 'r~ltiQ t(l 0.50. Source: TRI MET, Planning and Designing for Transit Handbook August 2008 Page 58 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN 4.3.2 SITE LAYOUT Site layout determines how pedestrians, cyclists, transit users and motor vehicle drivers and passengers will arrive at the site and travel through the site. As a result, site layout has a significant impact on whether users of different modes can safely and comfortably co-exist. Major decisions at this stage of the design process include determining the internal road configuration (where internal roads or driveways are required), parking layout and configuration, and the location of transit facilities, bicycle facilities and passenger pick-up and drop-off areas in relation to buildings and the internal and/or adjacent street network. . Pedestrian crossings, including mid-block crossings are well defined . Pedestrian connections are possible through the site . Number of driveways and mid-block access/egress is minimized . Transit stops are provided close to main generators and key pedestrian routes . Loading areas are underground in order to minimize visual impact and maximize safety . Where loading is above ground, access does not interfere with pedestrians and cyclists . Short-term bike parking is located in visible areas and protected from elements . On-street parking is factored into supply, provides a buffer for pedestrians . Parking lots are developed in modules and pedestrian routes are protected . Preferred carpool/vanpool parking is provided closest to destinations . Avoid drive-throughs, which tend to sever pedestrian movements though a site and add to vehicle emissions due to idling Contrasting Examples showing the impacts of site layout are provided below. It is recommended that CBRM develop and adopt guidelines for site design incorporating the above considerations. August 2008 Page 59 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN Exhibit 4.12: Contrasting Examples of Site layout Pedestrian routes eye! i ng Routes August 2008 Page 60 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN 4.3.3 SITE INFRASTRUCTURE Site Infrastructure is typically designed in greater detail once the general layout of buildings, parking, access and internal roads has been established. The design of site infrastructure, which includes decisions on road and sidewalk widths, materials and treatments, has can influence the "pedestrian- friendliness" of a site. Practices for designing site infrastructure to accommodate pedestrians and cyclists were discussed in the previous chapter. 4.3.4 SITE AMENITIES Site amenities are generally considered later in the site design process, but are no less important for sustainable modes than other site design aspects. The most important thing is that amenities for pedestrians, cyclists and transit riders be considered as part of the initial site design, rather than after a project is completed. Factors such as landscaping, bicycle parking and bicycle changing facilities can make the difference between a person choosing to walk, cycle or ride transit and taking their vehicle. While some of these features may involve extra upfront costs, the long term financial benefits can be covered by improved employee satisfaction, increases site value and reduced need for auto facilities. 4.4 Education and Awareness Strategy CBRM through the implementation of the AT network and policies can create more pedestrian- friendly and bicycle-friendly communities. Although facilities can encourage people to try walking August 2008 Page 61 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN and cycling more, programs that educate residents on the benefits of AT and promote more walking and cycling will have a positive impact on overall participation rates. A number of successful education and awareness programs were highlighted in the Phase 1 report including: . Active & Safe Routes to School (ASRTS) in Nova Scotia encourages children, youth, and their families to use active transportation with programs such as walking school buses, Walking Tour of Canada and Walk & Wheel Weekdays . Bicycle Friendly Business designations and awards . Bike Sundays banning automobiles on streets and opening them to pedestrians, cyclists, in-line skaters, skateboarders, etc. . CAN-BIKE safe cycling skills program administered by the Canada Cycling Association . Cycling Ambassadors teams of skilled cyclists who offer programs, campaigns, or deliver information at community events during the summer to encourage safe riding . Police on Bikes community policing, including active demonstration of safe riding skills Pedestrian and cycling safety and enforcement programs often focus on behaviour such as jay- walking or helmet use. To the contrary, the majority of reported pedestrian collisions occur when pedestrians are crossing intersections with the right-of-way, and bicycle helmets, although an asset, do not prevent collisions. Any safety and enforcement programs intended to support more walking and cycling should address changing pedestrian, cycling and motorist behaviours that result in injury and fatal collisions. This requires collecting and analyzing collision data in a meaningful way, supporting pedestrian and cycling skills training, motorists education and enforcement of those rules of the road that truly affect collision potential. Taking advantage of partnerships with stakeholders who have an inherent interest in seeing more people walking and cycling for a wide variety of reasons, coupled with local expertise and delivery mechanisms can be cost-effective. Those safety, education, enforcement and awareness programs that the AT Committee felt could be supported by a partnership between CBRM and various community stakeholders are outlined in Section 6.3-AT-Supportive Programs. Continued support of the AT Committee by the CBRM along with some contribution to annual funding can facilitate implementing these programs. 4.5 Economic Development and Tourism Strategy Supporting active transportation can enhance several sectors of the economy: . Create a healthier work force . Improve the quality of life leading to a vibrant community that attracts business . Create an active tourism sector Attract tourists to explore and enjoy a more vibrant community . August 2008 Page 62 181 GROUP FINAL REPORT 4.5.1 CYCLING TOURISM Regional and even national cycling tourism networks elsewhere in Canada and the world have succeeded in attracting local and international tourists. Inspiring is La Route verle in the Province of Quebec. It is a 4,000 km long network of bicycle routes that link 16 regions and more than 320 municipalities. It was officially inaugurated on August 10, 2007 with 86010 of the network complete. Based on a concept developed by Velo Quebec, La Route verle has been under development since 1995, with the collaboration of Transport Quebec as well as numerous regional partners. The network was expanded by: Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN . Using public rights-of-way such as abandoned rail corridors, tow paths and hydroelectric rights-of-way . Paving shoulders to make roads safer for cyclists . Identifying certain rural roads with little traffic as "designated cycling routes" Velo Quebec reported that between 1978 and 2005, the government of Quebec invested over $104 million in the development of bikeways, including $60 million on La Route verle. Paved shoulders, non-existent in 1995, are now more than 1,400 km in length. In 2000, La Route verle cyclists spent a total of $95.4 million. This corresponds to approximately 2,000 jobs (person years) and revenues of $15.1 million for the Government of Quebec and $11.9 million for the Government of Canada. Quebec cycling tourists spent a total of $54.6 million and people who live near La Route verle spent over $24.5 million. Extensive cycling routes are being implemented in other countries: . The European cycle route network, Euro Velo, is comprised of 12 long-distance cycling routes crossing the continent of Europe for a total length of 65,000 km, of which 30,000 km is in place . The United Kingdom national cycling network consists of more than 16,000 km of cycling routes on multi-use trails, quiet roads and traffic-calmed roads with approximately 75010 of the population of the UK living within 3 km of a national route . The German national cycling network is made up of 12 national routes with a length of 11,700 km, part of the country's national cycling plan to promote more cycling in Germany . The Cycling in Switzerland Foundation has been developing a national cycling network under the supervision of the Federal Government currently consisting of nine routes 3,300 km long Bicycle-friendly and walkable communities are good for business, revitalizing urban centres, creating business opportunities around urban and rural scenic routes, and creating active tourism- related businesses. Cycle-tourism alone is expected to see substantial growth based on experience elsewhere in North America: August 2008 Page 63 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN . European trends indicate that cyclo-tourism could reach 5 to 10010 of the total tourism market. In 1999 it was reported that three million people cycled In Switzerland. Some 350,000 stayed overnight spending on average C $120/day. Day-trippers spent on average C $20/day. In 1999 in the UK, cyclo-tourists spent on average $200/person per holiday. . The Government of Maine reported in 2001 that self-guided bicycle tourists spend $55/day, guided tourists spend $115/day, day trippers $25/day and local residents $4/day. Multiple-day bicycle tours constitute 2010 of the total number of cyclists but 170/0 of the total expenditures. . A study of bicycle facilities in North Carolina reported in 2004 indicated that the Government had invested $6.7 million of public funds to construct off-road paths and add wide paved shoulders to roads in the Outer Banks region. Bicycling in the Outer Banks benefits the area annually at an estimated US $60 million and bicycle facilities are an important factor for many tourists in deciding to visit the area. As a first step, it is recommended that the CBRM collaborate with the Province of Nova Scotia and Destination Cape Breton in creating an AT map, including cycling, pedestrian, transit and trail routes, and update as needed. Paving shoulders on rural highways is also a key requirement to increasing cycling tourism (see Exhibit 5.6 for proposed routes). Expanding promotional efforts and services in proven tourism areas that support walking or cycling like the pedestrian link from the Marine Terminal to downtown Sydney and the boardwalk will result in success as the interest and investment in active and cycling tourism trends are realized. This will aid businesses that benefit from downtown revitalization, rural trails development and cycling tourism. August 2008 Page 64 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN 5. RECOMMENDED ACTIVE TRANSPORTATION NETWORK 5.1 The Network Planning Process We are generally designing the AT network for: . Pedestrians including: Recreational Walkers Utilitarian Walkers Joggers and Runners People with mobility and vision challenges, including those dependent on mobility devices . Cyclists including: Inexperienced riders Casual riders. Recreational riders Utilitarian riders . Small wheeled (non motorized) users such as in-line skaters and skateboarders A balanced network with a hierarchy of facilities that allows pedestrians and cyclists to make choices about where they will ride and what routes they can use to their destination is key to the network development. 5.1.1 NETWORK PLANNING STEPS The Active Transportation Pedestrian and Bikeway network is developed through an iterative process that involves mapping and overlaying opportunities and constraints, examination of digital aerial photography and field assessment. The analysis process includes the steps and information inputs. Although it is presented here as a linear process, it is an iterative process whereby candidate routes are added or deleted and reassessed based on information that is received as the process unfolds: Step 1-0verlay Key Features: . Existing sidewalks . Other existing formalized pedestrian facilities including multi-use pathways and walking tracks . Familiar/favourite bike routes (Velo Cape Breton routes) . Current and known future opportunities such as future development areas (i.e. greenfield and brownfield), planned utility corridor implementation, planned roadway improvement, trail development initiatives such as the Green Link and Whitney Pier Heritage Trail August 2008 Page 65 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN . Signature/key projects . Important destinations such as elementary, secondary and post-secondary schools major commercial and employment areas, municipal and provincial parks, community centres, libraries, municipal/civic centres, hospitals, and transit nodes . Physical barriers to walking and cycling such as freeways, waterways and railways that have a limited number of crossings . Staff, stakeholder and public input (including youth) Step 2-Develop Candidate Route Network: Using information generated in Step 1 and Network Guiding Principles (as documented in the Phase 1 report) and Step 6 regarding strategies for the pedestrian cycling network, prepare a draft network Step 3-Evaluate Candidate Route Network: Through consultation with staff, stakeholders and the public, field checks, referral/reference again to the network guiding principles Step 4-Recommend a Preferred Route Network: Based on the results of Step 3, recommend a preferred Route Network Step 5-Determine Facility Type: A facility type will be recommended for each segment of the pedestrian and cycling network. It is important to recognize that the various communities through CBRM have their own unique aspects. As part of the determination of network routes and facility types, these unique characteristics should be considered. Applying a "one size fits all" approach to network routes and facility type should be avoided. Typical pedestrian facilities include: . Sidewalks . Walking Tracks . Multi use pathways . Low volume streets in urban areas where no sidewalks exist. . Road shoulders in urban (rural cross section) and rural areas Typical cycling facilities include: . On-Road . Bike Lanes August 2008 Page 66 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN . Paved Shoulders . Wide Shared-use or Wide Curb Lanes . Signed-only Routes . Off Road multi-use pathways Step 6-Determine Priorities for Implementation: The approach used to establish priorities for the implementation of the various routes in the proposed network (See Section 6.1). Step 7-Determine Implementation Costs: An opinion of probable construction cost based on current or known unit price costs (See Section 6.2). 5.2 The Network Concept The Active Transportation pedestrian and bikeway network is composed of Intercommunity and Intracommunity routes. These are complemented by Recreational/Scenic Routes. August 2008 . Intercommunity Routes-these form the skeleton of the network offering opportunities to move throughout CBRM; between communities/urban centres, and on direct routes through communities/urban centres. In the greater context (regional/provincial context) intercommunity routes will ultimately form the connections to neighbouring municipalities, and regional/provincial/national trail systems (see also Recreational/Scenic Routes below). The Intercommunity system is typically located on or along higher order roads, and linear off road corridors such as abandoned railway lines. . Intracommunity Routes-these provide links to the Intercommunity network and connect local/neighbourhood destinations and points of interest. The Intracommunity network includes Primary routes and Secondary routes. . Recreational/Scenic Routes-are complementary to the Intercommunity and Intracommunity route network. It is anticipated that these Recreational/Scenic routes will not be used frequently for Active Transportation, however they are an important aspect of the "big picture" for cyclist and pedestrian travel in CBRM as the use of these routes support other important initiatives related to healthy lifestyles, tourism and economic development. Although included in the CBRM AT Plan, these routes require further study through cycling and trail strategies. . Sidewalks and the Pedestrian Network-a connected sidewalk network is extremely important to pedestrian travel. Sidewalks already exist along many of the streets in urban centres and efforts should be made to eliminate gaps in the urban sidewalk network regardless of whether or not they are part of the key pedestrian network. An assessment tool (as described in Chapter 4.1.9) will help staff to prioritize the installation of new links across the entire sidewalk network in the urban areas. Urban Intracommunity and Intercommunity Page 67 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN pedestrian routes that are illustrated in the pedestrian network should receive priority winter maintenance. Furthermore, priority should be given to high quality, continuous sidewalks along these designated routes. When determining appropriate facility types for each segment of the AT route network, each route must be assessed on an individual basis. Exhibit 5.1 lists potential facility types that should be considered for pedestrian and bikeway routes according to network hierarchy. Exhibit 5.1: Network Hierarchy and Facility Types . Network C Potential Typical Facility Types I Comments Hierarchy Pedestrian Network I Bikeway Network I Intercommunity Intracommunity -Primary Routes August 2008 Multi-use pathway Bike Lane 1. In many cases the Intercommunity pedestrian network within Sidewalk Paved Shoulder urban centres tends to be associated with major commercial Wide Shared-use or areas, arterial and "main streets" Where feasible wider sidewalks Wide Curb Lane and streetscape amenities including landscaping will help to Multi-use Pathway create a more attractive/comfortable pedestrian environment 2. Where included Intercommunity pedestrian routes between urban centres would generally consist of multi-use pathways. Not all rural Intercommunity routes would include pedestrian facilities; some will have only cycling facilities. 3. Appropriate surfaces for Intercommunity multi-use pathways in rural areas include granular (i.e. stone dust) or asphalt. Consideration should be given to asphalt only for Intercommunity multi-use paths in urban centres as this will enable the widest range of pedestrian and small wheeled uses (skateboards, in-line skates, wheelchairs etc). 4. Using sidewalks for the Intercommunity pedestrian network is generally not recommended due to high cost and limitations that sidewalks create for other user groups. 5. Where possible bike lanes would be added to intercommunity routes in urban centres by retro-fitting (repainting). 6. Where it is not possible to add bike lanes on urban intercommunity routes by retro-fitting in the short term, consideration should be given to add them over the longer term as part of future road reconstruction. Wide curb or wide shared lanes should be considered as an interim solution provided that traffic volume, truck and or transit percentages do not exceed acceptable thresholds. Sidewalk Bike Lane 1. The Primary Intracommunity pedestrian network are the main Multi-use Pathway Paved Shoulder pedestrian spines through neighbourhoods and are intended to Wide Shared Use or connect the main destinations such as schools and community Wide Curb Lane centres. Priority should be given to sidewalk upgrades and winter Signed Route maintenance along these routes. Where a multi-use pathway is Bicycle Priority part of the Primary Intracommunity network, consideration should Street/Bikeway be given for winter maintenance. Boulevard 2. Bike Lanes may be appropriate on busier Intracommunity streets, and on streets where application of a bike lane will help to emphasize/create visibility for the cycling network, however wide shared use lanes and signed routes are often appropriate. Consider the aQQlication of technigues for bicY~Qriority (i.e. Page 68 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN - ~~~Ty~1 . Network Comments Hierarchy Pedestrian Network I Bikeway Network I II II I traffic circles, restriction of motor vehicle through traffic) on Intracommunity. routes. Intracommunity Sidewalk Wide Shared-use 1. Streets can be used by pedestrians where sidewalks or multi- -Secondary Multi-use pathway Lane use pathways can not be implemented and traffic volumes are Routes Low volume road Signed Route below thresholds. Bicycle Priority 2. Bike lanes are not generally recommended for Secondary Street/Bikeway Intracommunity routes as vehicular traffic volume and speed tend Boulevard to be low. Recreational I Multi-use pathway Paved Shoulder 1. Multi-use pathways, single or restricted use pathways, low Scenic Sidewalk Signed Route volume roads (urban) and paved or granular shoulders (rural) are Low Volume Road Multi-use Pathway the primary facility types for recreational/scenic pedestrian routes. Paved or Granular Sidewalks may be considered in exceptional circumstances. Shoulder 2. Paved shoulders should be considered for high volume/high speed rural scenic routes; otherwise signed routes are generally acceptable. Multi-use pathways should be granular surfaced. Asphalt may be considered in exceptional circumstances (i.e. scenic lookouts/points of interest where a high volume of pedestrian traffic is expected and accessibility for small wheeled uses is important. 5.3 Recommended Core Communities Network Exhbit 5.2 illustrates the recommended AT Plan and the Intercommunity routes between each of the four core communities. The recommended AT Plan for each of the four core communities of Glace Bay, New Waterford, North Sydney / Sydney Mines and Sydney are illustrated on Exhibit 5.3 to 5.6. 5.3.1 THE REGIONAL RECREATIONAL NETWORK The recommended overall regional network of cycling tourism and long-distance recreational trails is illustrated on Exhibit 5.7. August 2008 Page 69 J :t:.. ::!:. Q a r\' o " tQ Q ~ " ..... Q " f1) O:J ~ o Q:, m ~ ~ ,( ~7 w ;,:::N :3 \j - ,( '- ~' \ Exhibit 5.2 CBRM Active Transportation Plan - Network Region .~_..,~ .. - ....~ fi ~ "'\,w . .. ~~- ~~. IBI t;ROUI' ~ ~ Stantec The location of recommended network routes may be subject to change through more detailed technical studies and community consultation, where warranted, prior to the implementation of individual routes. At the same time however, the extensive community effort that established the overall directions of this plan and the recommended network must be respected. Therefore, specific changes to the recommended Active Transportation network should be evaluated in the context of such a decision's impact upon the overall AT Network and accompanying vision for Active Transportation in CBRM. In Association with Catherine O'Brien and Vibe Creative Group " Q 1'\ t1) to Q '< :x: Q "" c:r o s::: "" I-~ - " ~ ~ ~ ~. : a. !)i ~ 0 ~ ~ ~ w ~ .g' ~ g I ; I f i j ilnn! i 0. 0 0 ;:0 i ~ ~ ~ b' l; en ~ ~ " ~~ Co r- -n :t:- III n ('l m ~. m ~ Exhibit 5.3 CBRM Active Transportation Plan - Network Glace Bay ~Ii';..'-,,' ".~'."."'-.'. ." ,., ~ f!,)1J ir ~t..' !! ~~~ ; IBI calOUl' ~ Stantec The location of recommended network routes may be subject to change through more detailed technical studies and community consultation, where warranted, prior to the implementation of individual routes. At the same time however, the extensive community effort that established the overall directions of this plan and the recommended network must be respected. Therefore, specific changes to the recommended Active Transportation network should be evaluated in the context of such a decision's impact upon the overall AT Network and accompanying vision for Active Transportation in CBRM. In Association with Catherine O'Brien and Vibe Creative Group :i' Q" c" ~ to Q '< o ~ o ~ o cr, ~7 o ;':::O:l :3 D ~9 '?/ ~ SJ /<$lI'6>"h $ 0/0 I 0'<~1. 6>~O<$lO' :;- Q,. 5" :::! ~ ~ /\ ~i 11i~ ~ ~ lJ lJ jj !.! i 0;0 f[~O J~~",: ~ H ~ 2 ~ $l :i l"- S. \C Q ~ ~ ~ Z en ~ ~ ~ [~C.<: i} ~ ~ ~ ~. ~ ." o ~ c Exhibit 5.4 (BRM Active Transportation Plan - Network New Waterford ~iI.'.~ ~.. .~ A....!I~.... -;"... 'f -\.. .-.. tZt~. ; IBI t;ROUI' The location of recommended network routes may be subject to change through more detailed technical studies and community consultation, where warranted, prior to the implementation of individual routes. At the same time however, the extensive community effort that established the overall directions of this plan and the recommended network must be respected. Therefore, specific changes to the recommended Active Transportation network should be evaluated in the context of such a decision's impact upon the overall AT Network and accompanying vision for Active Transportation in CBRM. ~~ ~ ~ ~ t c?b ~ Stantec In Association with Catherine O'Brien and Vibe Creative Group ~ is'" ~ i=\" o '" ~ Q :::! o ~ o ~ o cr, ~7 o ;':::O:l :3 ~ g. ~ :x: Q "'" a- o c: "'" II~ ~ ~ ~ ~ ~ Co ~ 5. 0 ~ i ~ ~.w 2 ~ :;- ~ Hill ~ ~ n r- o CD 3 ~ (fJ 3 ::::l ~ ~ 0- "T1 III o ;::;: ~. Exhibit 5.5 CBRM Active Transportation Plan - Network North Sydney and Sydney Mines ~;~..~ ~aA t~; The location of recommended network routes may be subject to change through more detailed technical studies and community consultation, where warranted, prior to the implementation of individual routes. At the same time however, the extensive community effort that established the overall directions of this plan and the recommended network must be respected. Therefore, specific changes to the recommended Active Transportation network should be evaluated in the context of such a decision's impact upon the overall AT Network and accompanying vision for Active Transportation in CBRM. '" :'" :t:.. ~ ~ t1) ~ g Q ~ ~ !!. / ::n(... ~ .r !~ # lil """-~ .... .,1-.1" ~ o ~ o ~ o cr, ~+ o ;':::O:l :3 IBI calOUl' . Stantec In Association with Catherine O'Brien and Vibe Creative Group r/ :Qj0 ~ q,-"" . (6~' ,,",,0~ ~\ ~ t--;~ '" ~i ;~ :-0 ~o *' .-r- ~ ~ g. ~ :x: a "" 0- o s:: "" --...r---- fti'~~~ ~ ~',~, g. -. ::J 0 V1 a... .-+ ....,., ~ ~ ~ ~ ~&-8.1O ",,",woro 0" ::J ~::J ~ ~~gffi ~3~'- rn ~. ro . <::;0 ro ~ a... --..../' 0- ~~ I[~ 1 il ~ ~ ~ ~ ~ \.ceuld ~SJ 0;0 ~5.0 j~ l!giJl~' ~! ~ I Ij: q nQ ~~~ "'C\ (J)3~ -<:%I ~ ~ Co ~ m Q. ~ "Z > ;J1 m ~ ~ -< m ~ )>:%1 :%I m )> c ~;g ~ ~C1;::+ ....,.,a...o o ro ::J ~~~ ~-<~ ro~-o ~~~ ~~~ ~.~. ~. Exhibit 5.6 (BRM Active Transportation Plan - Network Sydney IBI t'iROUI' Stantec The location of recommended network routes may be subject to change through more detailed technical studies and community consultation, where warranted, prior to the implementation of individual routes. At the same time however, the extensive community effort that established the overall directions of this plan and the recommended network must be respected. Therefore, specific changes to the recommended Active Transportation network should be evaluated in the context of such a decision's impact upon the overall AT Network and accompanying vision for Active Transportation in CBRM. In Association with Catherine O'Brien and Vibe Creative Group 2.5 7.5 10 Km "~ i- ( I~'<;) ;- ( ) J' ~J M'O!''''" ~.~ '"I ) LEUR-RE-LIS TR~I I ~ , .ti / f7 ...r;..... .+ j ~ ~ Gabhs ?) - ~ # ~, ( t" , yJ~E2EATIONAL I SriNIC ROUTES Legend . , '" ~ Upper GJnd Mira ! ~ ~ Fl.Ey~-DE-LIS:T~~.IL .. CO J tl -uES ....'" :.w Scenic Bicycle Routes (identified by Destination Cape Breton - On Road) 1 t I ,J I. I. i if. _ Scenic Bicycle Route 0- Bras D'Or Scenic Drive t ,.1., Community Facilities :.:p ,. Enon ~(r"~ \ (~>t~r , ~ ~ ... ~~~ ~ BRAS D'OR'S€ENIC DRIVE CONTINUES~'::;;'1 ~ _ ..t. I .J:::!=t Hospital trt Parks and Open Space .t.. ;L I:::J Parks and Open Space _ Provincial Parks Intercommunity Routes - Routes connecting one community to another Exhibit 5.7 CBRM Active Transportation Plan - Network Recreational and Scenic Bicycle Routes ~Ij~..'~ ;.'. "', ~.., a..;~.,.. ~~.':'" I. ". ...... . . . t~; IBI t;ROUI' . Stantec The location of recommended network routes may be subject to change through more detailed technical studies and community consultation, where warranted, prior to the implementation of individual routes. At the same time however, the extensive community effort that established the overall directions of this plan and the recommended network must be respected. Therefore, specific changes to the recommended Active Transportation network should be evaluated in the context of such a decision's impact upon the overall AT Network and accompanying vision for Active Transportation in CBRM. In Association with Catherine O'Brien and Vibe Creative Group 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN 5.3.2 SIGNATURE PROJECTS As part of the AT network development, key or "signature" projects were identified that are considered of benefit to the core communities and the region and have some support from stakeholders and the public. These projects are listed below and illustrated on Exhibit 5.8. Intercommunity Links Sydney to Glace Bay Multi-Use Path This project presents an opportunity to connect the communities of Sydney and Glace Bay while at the same time providing a link to Cape Breton University which lies about half way between these two communities. Currently conditions for cycling on and walking along Grand Lake Road/Sydney Road are less than ideal given the presence and speed of traffic and lack of facilities. There are sidewalks throughout most of the length between Mayflower Mall and Reserve Mines, however, they are minimal and in poor repair. The roadway has a curb and gutter throughout and four travel lanes. Three options to improve this corridor for pedestrians and cyclists include: . Develop the old tramway line as a multi-use trail. It is located for the majority of the corridor on the south side of Grand Lake Road, crossing near Doolans Lane . Reconstruct and/or narrow traffic lanes on Grand Lake Road to provide a wider curb lane and/or 1.5 m on-street bicycling lane, and construct a new 1.5 m wide sidewalk throughout on the east side of the roadway . Construct a multi-use trail on the south side of Grand Lake Road/Sydney Road A fourth option could include the use of express buses between Sydney and Glace Bay, which would connect key nodes within each community. These nodes could include secure bike parking, designated carpool spaces and sheltered waiting areas, and could be exclusive or supplementary to the above options. The advantages and disadvantages of each of these options have been discussed with both CBRM staff as well as staff and students of Cape Breton University. The preference is to construct a three metre wide (preferable) multi-use trail on the south side of Grand Lake Road/Sydney Road. While the tramway option is attractive in that there is already a pre-defined corridor and most of the railway bed is intact, this option presents issues for personal security, lighting and maintenance. There are advantages to keeping the trail close to vehicular traffic to provide a greater sense of security for those using the path, the ability to use existing poles to provide illumination, and ease of access for maintenance. A section of the tramway line from the race track to CBU is recommended since this is a relatively short section with direct connection to the campus, avoiding a couple of properties fronting on Grand Lake Road that would be difficult to traverse with a multi-use trail. Given the speed of traffic on the adjacent roadway, an off-street multi-use trail may attract less experienced cyclists who would otherwise not choose to ride along this corridor on the roadway even if wide curb lanes or bike lanes were provided. August 2008 Page 76 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN One of the most significant challenges with this project will be in the connections with downtown Sydney given the design of Welton Street west of Highway 125/May Flower Mall and its multiple driveways and narrow lanes. One alternative to using Welton Street as the Downtown connection would be to develop a mutli-use path along the remainder of the former tram line between SPAR Road and Victoria Road. There may be opportunities to provide an improved connection across Highway 125 as part of the planned highway twinning. There are also plans to convert portions of the Cossitt Heights Industrial Park to residential and this may present other opportunities for improving cycling and pedestrian connections. The entire Cossitt Heights community could be designed to be supportive of AT. New Waterford Highway Improving the New Waterford Highway for cycling is an important but perhaps longer term project. The New Waterford Highway is one of the most scenic highways in the region and presents an opportunity for cycling tourism. It provides a great opportunity for tourists staying in Sydney to enjoy the amazing vista along the highway at South Bar, New Victoria, Victoria Mines and in New Waterford. One of the challenges with this highway is the very narrow shoulders. Constructing an off-street multi-use trail is probably not an option given the close proximity of the highway to the water, the narrow road right- of-way, and topographical constraints on the opposite side of the highway. Therefore the recommended approach is to establish a policy whereby paved shoulders are provided when portions of the highway are upgraded. There may also be opportunities to retrofit the highway with paved shoulders in selected areas, as a priority, connecting New Waterford to Victoria Mines and New Victoria. DEVCO Rail Line Devco owns several abandoned rail lines throughout Cape Breton Regional Municipality. One of the abandoned lines extends from Gardiner Mines to Glace Bay and beyond to Louisbourg. This corridor could be converted to a multi-use trail which would double both as a recreational amenity as well as a potential commuter link between Glace Bay and Dominion and even Sydney. What is most attractive about this corridor is that it winds its way through the neighbourhoods of Glace Bay including the downtown area. It connects the former coal collieries which are now abandoned and could form a tourism trail, similar to the Colliery Routes in New Waterford. There are some challenges with developing this corridor into a multi-use trail including whether or not this rail line may be reopened if the Donkin mine is put back into service as contemplated. However, it is expected that an entirely new rail line would be constructed to serve this facility if it reopened. Preliminary discussions with Devco suggest there are real opportunities for the development of this corridor as a multi-use trail. Devco wishes to embark on a number of "legacy" projects, and this would closely tie with those objectives. Issues to be resolved would include whether or not the corridor is opened to A TVs and four- wheelers. A hybrid option where portions of the trail in the rural areas are opened to motorized recreational vehicles is possible, however, it is preferable that these vehicles be discouraged in August 2008 Page 77 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN residential neighbourhoods and the downtown core on the Dominion to Glace Bay portion. It is recommended that proponents of this line work with local A TV clubs to ensure that conflicts between ATV users and AT participants are minimized. Westmount Road Upgrades Westmount Road is currently a provincial roadway extending from Keltic Drive through to the community of Westmount. There are already partial paved shoulders on one side of Westmount Road and the current low traffic volumes make it fairly friendly to cyclists, though wider paved shoulders would be desirable. There are a number of upgrades that could make the connection to Westmount even more attractive for novice cyclists and pedestrians. One such improvement is a new pedestrian connection across Sydney River in the area of Keltic Drive. Speed limits on Westmount Road could also be reduced from the current 70 km/h to 50 km/h to improve the comfort for cyclists. There are also a number of new developments proposed in Westmount. It will be critical for walkability to ensure that these developments include facilities for pedestrians. At the present time the subdivision by-law does not require sidewalks. It is also important to ensure that when new roadway improvements are constructed, as a requirement of new developments, considerations for walking and cycling are incorporated. Ideally, Westmount Road upgrades should extend to the Canadian Coast Guard College/new DFO offices/Petersfield Park. Cross Harbour Ferry The idea of a passenger ferry between downtown Sydney and Westmount has come up on several occasions and is worth exploring as a potential signature project. One of the challenges with the connection between Westmount and Sydney downtown is that the distance by road between the communities is quite long at approximately eight kilometres, while they are separated by only 600 m by water. The population of Westmount is approximately 2,000 people and growing. A ferry connection to Westmount would allow people in that community to walk to the ferry and take short trips to downtown Sydney thereby eliminating the need for a car. There are also opportunities for reverse commute trips given the Coast Guard College in Westmount is a major employer. The most likely location for a ferry dock terminal in Westmount would be the Dobson Yacht Club. In downtown Sydney the ferry could connect to either the boardwalk or the existing marine terminal/farmers market. This ferry could address the fact that there is currently no transit service between Westmount and the rest of CBRM. Clearly a more detailed investigation of the feasibility of a ferry connection would need to be conducted, including an assessment of the capital and operating costs, liability issues and other issues such as high winds and ice. Intracommunity Links Kings Road In 2004 CBRM reconstructed Kings Road to an urban cross-section consisting of four lanes. This project included upgrading the sidewalks throughout, but the provision of bike lanes was debated and in the end not included as part of the reconstruction. Through this study's consultation, we have heard people express that this was a lost opportunity. August 2008 Page 78 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN Kings Road is the main connection to the downtown for the communities of Sydney River, Howie Cente, Westmount and even North Sydney via Celtic Drive. Traffic volumes are high, the new travel lanes are a standard width (3.65 metres) and the four lane cross-section contributes to fairly high speed. At the same time, there are residential and commercial uses along Kings Road that cyclists desire access to. Three alternatives are considered for improving this corridor for cyclists. These include: . Reduce the current four lane cross- section to three lanes and providing a centre, two-way, left-turn lane in conjunction with on-street bike lanes. Such "road diets" have been successful in other jurisdictions on roadways with Average Annual Daily Traffic volumes up to 25,000 with reductions in higher speeds and crashes, and only a small change to travel times; . Narrowing the centre travel lanes by re-striping and providing wider curb lanes to allow for space for cars to pass cyclists in the same lane, and marking these with shared-lane pavement markings or "sharrows". While the resulting facility would not be considered a bike lane, "sharrows" would indicate that cyclists may be are present and motorists should provide them space on the roadway when passing; . Developing a new off-road multi-use trail in conjunction with the construction of a potential new sewer line. The sewer line would extend from approximately Wentworth Park to Kenwood Drive and is required to collect and treat sewage that currently flows directly into the harbour. Negotiations for easements across private property are required along with shoreline environmental concerns are stalling this project that is already funded. . Developing a new off-road trail immediately adjacent to the existing rail line, which may be feasible due to the low volume of trains on this corridor (less than three per week). The selection of the preferred alternative for this corridor will ultimately depend on the feasibility and timing of the new sewer line. One of the advantages of constructing a mulit-use trail over the sewer line is that the marginal costs are relatively low as the sewer line requires access for service vehicles regardless. It is expected that the right-of-way required for the sewer would be between 5 metres and 10 metres, which is more than sufficient for providing a 3 to 4 metre multi-use trail. This type of facility would attract less experience cyclists and recreational users of all types, and, given a positive experience on the trail, may consider other routes and trips. Further work would be required to resolve connections from the new multi-use trail to the downtown, however, the objective would be to create a continuous link from the current downtown boardwalk for pedestrians, and an on- road route for cyclists. Pending the timing and feasibility of the sewer line project, the next best alternative would be to create on-street bicycle lanes through what is commonly referred to as a "road diet". Although traffic volumes on Kings Road are quite high, research has found that a three-lane roadway provide nearly as much capacity as a four-lane roadway as the centre two-way, left-turn lane allows vehicles to turn without interrupting the traffic flow. August 2008 Page 79 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN In addition, a special study is recommended to find a route through the Highway 125 interchange on Kings Road to make the connection southerly to Sydney River and Floral Heights. Downtown to Mayflower Mall The connection for both cyclists and pedestrians between downtown Sydney and Mayflower Mall is one of the most problematic corridors. There is an opportunity to develop an entirely new corridor for active transportation as part of the tar ponds redevelopment. This opportunity is currently being considered as part of the Port-to-Port study, which envisions an active transportation corridor between the port industrial area in Whitney Pier and the Sydney Airport. Eventually, the corridor would connect to a continuous link from Ferry Street around the North End of the peninsula and back to the boardwalk, as shown on Exhibit 5.5. A portion of this link could even utilize the abandoned tramway corridor, as previously discussed. One obstacle to overcome would be the fact that this corridor would pass by some potentially offensive uses, including the landfill site. However, it is felt that the advantages of this direct connection would outweigh these issues. If this project is considered viable, one of the recommendations of the active transportation study would be to ensure that the resulting multi-use trail is direct (and scenic), as opposed to circuitous and scenic. In the short term, paving of the shoulders along the SPAR Road would help facilitate access between Mayflower Mall and Downtown Sydney. At the same time, it would be desirable to provide a separate bike path across the tracks, which ensures cyclists crossing the tracks at a 90 degree angle angle; the current skewed crossing is a hazard. George Street Through the North End of Sydney, George Street is an extremely wide roadway for a residential street. It was originally designed to be a "grand boulevard", however this did not occur. Within the north end there is sufficient width to provide generous on-street bike lanes while still maintaining on-street parking. South of Dorchester Street, George Street is currently four lanes wide with metered on-street parking permitted in the curb lane. Therefore the continuation of bike lanes would likely require either removing one side of parking, and/or a travel lane. As described previously, this reconfiguration of road space, or "road diet", may reduce speeds and crashes with little effect on traffic volumes and travel times. Creation of a bike lane on George Street has the opportunity to be a quick win, providing a very visible improvement at minimal cost. One challenge is that the bike lanes may not be used extensively given the short length and the fact that there is a limited population in the North End. Inclusion of benches or a small park at the northern terminus may help increase the overall utility of the bike lanes. Victoria Road - Whitney Pier Victoria Road is the main thoroughfare through the community of Whitney Pier. Its currently carries approximately 7,000 vehicles per day. Sidewalks are included on both sides of Victoria Road through most of the built-up areas and some have even been recently reconstructed with new curbs. In considering a need for Victoria Road and the surrounding Whitney Pier communities, it was felt that the best opportunity for this roadway is to improve conditions for pedestrians. Part of the rationale for this decision is that many of the side streets could be used by cyclists as they are low speed and low volume. August 2008 Page 80 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN Improvements to Victoria Road could include enhancements such as raised cross-walks, accessibility improvements and potentially streetscaping enhancements. The intent would be to make Victoria Road the most enjoyable place to walk for pedestrians, with potential economic spin- offs for local businesses. These pedestrian improvements could be extended eastward on one or more streets to connect with the Whitney Pier Heritage Trail. North Sydney Walking and Cycling Improvements In general, conditions for walking and cycling in North Sydney are quite good. However one of the issues from the public consultation is the gaps in the sidewalks that exist between the downtown and North Sydney Mall. Another potential improvement would be to provide bicycle lanes on Memorial Drive, Eveleigh Drive and Hartigan Drive through the industrial park. The current lane widths through the industrial area are in excess of 5 metres and could be easily re-striped to include bike lanes. It is also noted that pedestrians and cyclists use this roadway irrespective of the truck traffic. Some widening may be required on Memorial Drive between Fraser Avenue and Memorial High School. Another potential project for the Northside is to capitalize on the availability of the abandoned rail line in the Little Pond area near Florence. August 2008 Page 81 J ~ 3~~ "0 :) 0... """' lO :) ~~~ 30...$: ro n -. :) '< :) Ci ~ ~ :) lO \ )<~ ~\( \ :~~ -\~~ :t:.. g. a r\" o 1"\ f1) Q ~ ~ )l ?~ 1" (. kN " ..... Q " f1) Q:J ~ J / ~ ?! Exhibit 5.8 CBRM Active Transportation Plan Proposed Signature Projects ~Il':"~ a..'. I !}tll \.(\. ~. .~ ~; ~ ~ Stantec The location of recommended network routes may be subject to change through more detailed technical studies and community consultation, where warranted, prior to the implementation of individual routes. At the same time however, the extensive community effort that established the overall directions of this plan and the recommended network must be respected. Therefore, specific changes to the recommended Active Transportation network should be evaluated in the context of such a decision's impact upon the overall AT Network and accompanying vision for Active Transportation in CBRM. In Association with Catherine O'Brien and Vibe Creative Group 181 GROUP FINAL REPORT August 2008 5.3.3 WALKING LOOPS AND PEDESTRIAN IMPROVEMENTS The concept of walking loops has tremendous potential to be expanded to all communities. The intent is to establish loops of approximately one to two km long using sidewalks and/or trails. Targeted investments in the infrastructure comprising these loops would be made to ensure full accessibility, fill in any gaps in the sidewalk system and address pedestrian street crossings. A goal of the Active Transportation Plan is to establish at least one walking loops in each core community, as well as the main outlying communities such as Florence, Donkin and Louisbourg. Sydney Mines Walking and Cycling Improvements Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN Similar to North Sydney the community of Sydney Mines is fairly friendly for walking and cycling. However, some minor improvements could significantly enhance this area for pedestrians and cyclists. Such improvements would include bicycle racks on the main street and upgraded pedestrian crossings. There is also an opportunity to provide an on-street bicycle lane on portions of Main Street through the commercial district, however this would conflict with on-street parking. Trails Greenlink/Rotary Park The GreenLink Park Society is a Sydney, Nova Scotia community group proposing a major natural recreation development for the heart of Sydney, focused on Rotary Park. The GreenLink Park concept includes a trail network, neighbourhood parks, interpretive pavilions, an amphitheater, and a wheelchair accessible promenade on a sixty-six acre parcel of land between downtown Sydney and the Cape Breton Regional Hospital. EDM consulting of Halifax completed a conceptual design for the project in December 1998 and the GreenLink Park Society has been introducing the proposal to the community since then. As part of this study, a walk-about was conducted with the Greenlink group. Notes and ideas from this walkabout are contained within the Phase 1 Report. Whitney Pier Heritage Trail The Whitney Pier Historical Society is promoting the Whitney Pier Community Heritage Trail in co-operation with CBRM, NS Dept. of Natural Resources, Nova Scotia Lands, and Nova Scotia Power to increase recreation opportunities for the Whitney Pier community and other CBRM residents, and to commemorate the historic association between Whitney Pier and the former Sydney Steel Plant. The Vision for the Trail is to "provide active and passive recreation opportunities for community residents and visitors, while commemorating the past and fostering community pride". Planning for this trail has advanced to the point where draft trail maps have been completed and discussions on Page 83 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN property requirements/ownership have commenced. However, funding remains an outstanding issue. 5.4 Trails Strategy 5.4.1 WHAT IS THE RELATIONSHIP BETWEEN TRAILS AND THE CBRM ACTIVE TRANSPORTATION PLAN? A central goal of the AT Plan is get more people to choose Active Transportation travel options more often. Active Transportation encompasses a variety of modes and a variety of infrastructure and facilities. One component of the Active Transportation Plan is a network of facilities that users such as pedestrians, runners and cyclists can access. In CBRM the family of AT facilities includes: . Roads with and without dedicated bikeways such as bike lanes, paved shoulders, shared lanes and signed routes . Sidewalks . Off-road trails Many off-road trails that have been identified in the Region, some are embedded within the fabric of urban centres such as Sydney and Glace Bay, some are located in rural areas between urban centres, some are isolated in remote rural areas, and some are connected other regional, provincial and national trails. Trails, particularly in the urban centres form a critical part of the AT network as they serve to link destinations and provide connections to other AT facilities such as sidewalks and on-road cycling routes. Trails in rural areas on the other hand are more complementary to the AT network. Although they do not typically form part of the critical AT network, these facilities provide opportunities for active recreation, which can in turn influence lifestyle habits and ultimately encourage higher Active Transportation participation rates. It is important therefore that the entire trail system in CBRM be better understood in the context of the Active Transportation Plan. 5.4.2 THE TRANS CANADA TRAIL The Trans Canada Trail (TCT) is an 18,000 km recreational corridor running through every Province and territory in Canada, connecting the Pacific, Atlantic and Arctic Oceans plus over 800 communities along the way. When completed, it will be the longest trail of its kind in the world. The TCT concept is about linking existing trails and trail organizations where they already exist, and creating new trails and encouraging the creation of new trail organizations where they do not. As part of this concept, local trails retain their own identity, and are also unified by the TCT identity and emblem. Where the TCT runs through an area or region with an existing or planned network of trails, it is encouraged that the local trails be connected to the main spine of the TCT. The trail is punctuated by pavilions along its length and these serve to recognize local contributors to the development of the trail. The proposed CBRM AT Network is linked to the Trans Canada Trail in North Sydney as depicted in Figure 5.6. The Trans Canada Trail has been designated along King Street August 2008 Page 84 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN in North Sydney connecting to a multi-use trail/access road at Pottle Lake and continuing to Scotch Lake. A TCT Pavilion exists at the foot of Court Street near the Marine Atlantic Ferry Terminal with service to Port aux Basques and Argentia, Newfoundland and Labrador. South of Scotch Lake, the TCT route is conceptual and would be further defined in a Regional Trails Strategy. 5.4.3 WHAT ARE THE KEY ELEMENTS THAT SHOULD BE INCLUDED IN A TRAIL STRATEGY? Trail strategies and master plans come in a variety of "shapes and sizes", often related to the size of the project area, the owner(s)/manager(s) of the trail system and the characteristics of the physical environment in which the trails are located. Trail master plans can focus on short trails of a few kilometers, one specific trail or one trail management group, or they can be developed for entire regions and bring together many individual trail organizations, thousands of kilometers of trails and a variety of trail user groups. Regardless of size/length and complexity of the trail system, trail strategies/master plans often have a number of common elements including: 1. An articulation of a vision goal and objectives 2. An understanding of the relationship between a trails strategy and other local policy documents such as Municipal Plans. In the case of CBRM, this may also include the relationship to the Active Transportation Plan and other initiatives at the regional level such as public health, tourism and economic development. 3. The benefits of trails (environmental, health, economic/economy and tourism) 4. An inventory of trails such as: a) Mapping of existing and planned trails b) Mapping of trail destinations and barriers c) Understanding/classification of the resources (i.e. land ownership-public vs. private, natural and cultural heritage opportunities and constraints etc.) 5. Identification of trail network route options 6. A consultation program with stakeholders and the public 7. An evaluation of trail network options and the recommendation for a preferred option 8. A description of the overall design intent, or design guidelines which provide an understanding of how trails should be classified and what they should look like. For example The Haliburton Highlands Trails and Tours Network (Haliburton, Ontario) commissioned the preparation of a Trail Development Template (http://www.trailsandtours.com/dev.php). The Template is seen as one of the key ingredients for a popular, recognizable, safe and successful trail network in the Haliburton Highlands. The template sets out a series of guiding details that help to form a framework and includes the following items: a) The trail development process from inception of the idea through to the construction and ongoing management of the system August 2008 Page 85 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN b) Unit prices for construction c) Trail design guidelines that provide information related to: i. Typical trail dimensions other design considerations such as surface type for defined uses/classes of trail ranging from single track trails in remote areas to highly urban multi-use trails ii. Design strategies for steep slopes iii. Trail user codes of conduct iv. Trail crossings of wetlands and water bodies v. Trail Drainage vi. Trail access points/staging areas and related amenities vii. Trail junctions with other trails and trail crossings of roadways viii. Trail access points (gate and fence systems) ix. Trail signage and wayfinding x. Trail closures and rehabilitation of closed trails 9. A method for classifying trails that organizes them according to defined user groups and the type of trail based on the level of trail development (i.e. primitive, semi- developed or developed). A classification system helps to define appropriate user groups and approved uses, and provides a description trail users needs based on class. Where one objective of a trail strategy is to bring together a number of individual trail organizations, the classification system allows member organizations to identify where/how their trails fit within the entire scheme and/or tailor the development of their trail(s) to a particular class, and can help to organize and manage funding applications. 10. Planning strategies and policies dealing with topic areas such as integrating trails with new development, connecting trails in new development to surrounding lands and retro-fitting trails in existing neighbourhoods. 11. An order of magnitude opinion of construction cost - based on unit prices from similar projects in the area 12. An implementation or phasing strategy for construction which identifies priorities for development and a timelines, costs and potential sources of funding/funding partnerships 13. The creation of a management structure and management/business plan which sets out goals, objectives and resources needed to achieve them and provides details regarding the makeup and reporting structure of a trails organization. Several management models have been used across the country a) some such Cape Breton Island Pathways (www.pathwavscb.ca/) bring together many local organizations and operates independently of municipal government to b) those that have a direct relationship with municipal government (i.e. Committee of Council, Advisory Committee), and c) those that lie somewhere between the two. 14. A protocol for trail monitoring and maintenance August 2008 Page 86 181 GROUP FINAL REPORT August 2008 Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN cBRM should recognize the importance and value of trails in the context of the Active Transportation Plan, and should consider the development of a comprehensive Trail Strategy for the Regional Municipality. Page 87 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN 6. IMPLEMENTATION PLAN 6.1 AT Network Priorities 6.1.1 RATIONALE The implementation plan for the proposed network is intended to guide decision-making over the next 20 years. It is based on the proposed network in the master plan and current knowledge regarding trends, preferences, important destinations, and planned Capital projects at CBRM. The proposed implementation plan consists of two phases: . Short Term (2009-2014) . Long Term (2014-2029) The approach used to establish priorities for the implementation of the various routes in the proposed active transportation network considered the following strategies: 1. Where possible take advantage of and work in tandem with planned road reconstruction and resurfacing projects 2. Consider suggestions regarding priorities that were provided by the Active Transportation Committee, staff and public at various stages throughout the study 3. Construct routes in new development areas as construction progresses 4. Close gaps in the existing network 5. Provide spine connections between the core communities (Glace Bay, New Waterford, North Sydney, and Sydney) 6. Build where demand is anticipated and higher volumes are expected (includes key corridors and/or key destinations) 7. Develop connections to the more extensive sections of multi-use trail that exist or are implemented in the short term and that also serve as good transportation connections, by virtue of their location, length or the continuity they add to the active transportation network 8. Attempt to provide an equitable distribution of routes/facilities among each of the core communities (Glace Bay, New Waterford, North Sydney, and Sydney) and in the smaller rural villages. Strategy 1 is fundamental to the implementation, and is based on known and/or documented forecasts, which change from time to time and require annual Council approval. Therefore, it is important that those responsible for monitoring and scheduling the network implementation reconfirm capital forecasts at CBRM on a regular basis. The Active Transportation Network generally consists of a pedestrian component and a cycling component, and as such can accommodate all Active Transportation modes. The pedestrian and cycling component vary depending on location. For example, in urban areas the Network consists of a pedestrian and cycling component, utilizing sidewalks, multi-use trails and on-road bicycle routes, respectively. In contrast, a dedicated pedestrian component may not be included in all rural locations. Where multi-use trails are provided in rural areas, they can be used by pedestrians. However the majority of facilities in rural areas consist of paved shoulders of roadways and signed August 2008 Page 88 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN routes on low volume roads to cater to bicycle users. Paved shoulders and low volume rural roads can be used by pedestrians, however it is anticipated that the level of use by pedestrians will be low. Sidewalks are typically not provided in rural areas, though there are a few exceptions (i.e. Marion Bridge) where some sidewalks already exist. The following are some additional considerations for sidewalks, multi-use trails and on-road bikeways where they form part of the Active Transportation Network. 6.1.2 ADDITIONAL CONSI D ERA TIONS FOR SID EWALKS High quality, connected sidewalks are the foundation of the pedestrian network in the urban areas. Where opportunities exist in parks and public open space, sidewalks can be complemented by multi-use trails. In developing the pedestrian component of the Active Transportation Network the location and extent of existing sidewalks was examined in conjunction with the location of key pedestrian trip generators and destinations. The outcome of this analysis yielded one of 3 implementation scenarios for the Active Transportation Network: . Adding a sidewalk on one side of the road where none currently exist, either to close a gap in the existing sidewalk network or to extend a sidewalk to an important destination(s) that was identified during the study . Adding a sidewalk on both sides of the road where portions of completed sidewalk exist on both sides of the street and closing gaps results in a complete sidewalk network . Adding sidewalks on both sides of the road where none currently exist, and there are important pedestrian destinations on both sides of the street were identified during the study. A discussion of the sidewalk locations (one side or both sides of the street) is provided in Section 4. For the purposes of developing the Active Transportation Network illustrated in this Plan, sidewalks were assumed to be present or absent according to the base data provided by the CBRM. No condition assessment of existing sidewalks was undertaken as part of this study, therefore no cost was assigned to rehabilitating or replacing existing sidewalks. It is assumed that the assessment, prioritizing, rehabilitation and/or replacement of existing sidewalks are part of a separate sidewalk operations and maintenance program, which has its own budget. Furthermore, it is assumed that this program would continue with consideration for and coordination with the implementation of the AT Network described in this plan. Likewise, many sidewalks currently exist along roads in the Region that have not been identified as part of the Active Transportation Network. Condition assessment and priority setting for the rehabilitation and replacement of substandard and aging sidewalks should continue as part of the general sidewalk operations and maintenance program. When old sidewalks or varying standard are replaced, they should be upgraded to meet current standards as opposed to a simple replacement of what is being removed. 6.1.3 ADDITIONAL CONSIDERATIONS FOR MULTI-USE TRAILS Multi-use trails that form part of the Active Transportation Network have been identified in both the urban and rural areas of the Region. August 2008 Page 89 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN In urban areas they may serve as a direct link to key destination, fill a critical gap in the pedestrian network, and like sidewalks they provide facilities that encourage residents to adopt more active lifestyle habits, which in turn may help to increase participation in Active Transportation. In rural areas, multi-use trails that have been identified as part of the Active Transportation Network are main spines that connect communities. Multi-use trails in rural areas generally serve cyclists along their entire length whereas the highest volumes of pedestrian activity are often limited to areas along the trails where access points are provided, where scenic views and vistas exist, or where there are significant destinations, attractions or trail loops. A recreational trail network that serves hikers, recreational walkers and tourists is complementary to the multi-use trails identified in the Active Transportation Network. The need to develop a plan for the recreational trail network is discussed in Section 4. All existing multi-use pathways that are noted as part of the Active Transportation Network should be assessed on a case-by-case basis to determine what design and maintenance modifications are required, and budgets should be approved to undertake the necessary improvements for year- round multi-use. 6.1.4 ADDITIONAL CONSIDERATIONS FOR ON-ROAD BIKEWAYS There are a number of other important considerations when evaluating future on-road cycling routes and determining appropriate phasing for the facility implementation. These include: . Where road platform width is sufficient but existing pavement width is inadequate, schedule implementation at the same time road resurfacing occurs to provide a 1.5m wide paved shoulder on both sides of the road. Note, 1.8m wide paved shoulders are recommended for roads with a posted speed over 80km/hr and/or a high volume of truck traffic). . Where platform width is not sufficient to accommodate the recommended facility type and where implementing a shared or signed route as an interim solution is not recommended because of roadway characteristics (i.e. traffic volume, mix or speed), the route should be considered as a medium or longer-term priority tied to roadway reconstruction. This provides significant cost savings as compared to constructing the bikeway as a stand-alone project. . If pavement width is adequate and implementation is related to adding pavement markings, co-ordinate implementation with the CBRM pavement marking program and consider fast tracking those roads that are identified in the Active Transportation Network. . Acquiring additional lands to expand the right-of-way for the sole purpose of implementing a recommended bikeway is generally not recommended as it is not the best and most efficient use of public funds, however, this may be the only long-term option, if no alternative emerges. Acquisition should be pursued as a "last resort" only when all other alternatives have been exhausted. Further review and analysis in preparing each route's implementation plan may result in revisions to the Active Transportation Network. August 2008 Page 90 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN 6.1.5 UNIT COSTS FOR CONSTRUCTION A schedule of unit costs used to calculate network implementation costs is provided in Exhibit 6.1 These unit costs (in 2007/08 dollars) are based on the following assumptions: . Cost estimates for on-road bikeways assume bi-directional facilities (i.e. one way on both sides of the street); . Estimates do not include the cost of property acquisitions or utility relocations; . Costs associated with major site-specific projects such as bridges, railway crossings, retaining walls and stairways are not included in the estimate; and . All applicable taxes are additional. Estimated unit costs for the construction are based on averages obtained from recent construction projects in municipalities across southern Ontario. They should be used as a guideline for establishing the costs for implementation of the active transportation segments. The unit costs assume typical conditions for construction. Additional items, such as information signage and other amenities, are listed separately. Exhibit 6.1: Unit Costs of Construction ITEM 1. Major rough grading (for multi-use pathway) 2. Clearing and Grubbing I cubic metre II square metre I square metre I II II 6. Fencing II LM II 7. Construct new granular G surface trail on abandoned LKM railway corridor 8. Construct new granular I surface Qathway 9. Construct new asphalt trail II 10. Upgrading granular trail to I tar and chiQ 11. Upgrading granular trail to I aSQhalt 12. Construct Concrete sidewalk 13. Construct pedestrian overpass of major arterial/highway I II II I On an abandoned railway line, rails and ties already removed and off-site. Includes leveling and packing after leveling (3.0m wide) II Basic wood post and rail style railing I Price range applies to 400mm diameter CSP up to 600mm diameter CSP II Includes basic allowance for items 1-6 noted above. Assumes $18,000-30,000 one basic roadway crossing every 5 km on average. 3.0m wide granular surfaced Qathway II $112,000 I~a' site conditions (3.0m wide) 1L-$114.ooo~1 Normal site conditions (3.0m wide) II $12 000 I Includes one coat primer and two coats surface (areas , reguiring "trail hardening" - 3.0m wide) II $50,000 I Price includes some upgrades to the base (3.0m wide) I LKM II ~75,OOO 11.5m wide concrete sidewalk, one side of street only. G 750,000-2.0M $25 UNIT COMMENTS/ASSUMPTIONS $2 3. Grading and compacting path bed $1 4. Culvert Railings 5. Install new culverts LM $100 $75-160 $55 LM LKM LKM LKM LKM Requirements and design vary widely, use price as general guideline only August 2008 Page 91 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN . PART A. PEDESTRIAN AND MULTI-USE TRAIL NETWORK II I UNIT PRICE I ITEM UNIT 2008 DOLLARS1 COMMENTS/ASSUMPTIONS 14. Trail/road transition (at- Typically includes two gates, warning signs, curb cuts an grade mid-block crossing, minimal restoration (3.0m trail) at-grade crossing at each 5,000-7,000 signalized or unsignalized intersection) 15. At-grade railway crossing II each II $65,000 II Flashing lights, motion sensing switch (C.N. estimate) 16. Below-grade railway I each II $500,000 I 3.0m wide, unlit culvert style approx 10m long for single crossing elevated railway track 17. Multi-use subway under 4- II each II $1,200,000 I Guideline price for basic 3.3 m wide, lit lane road PART B. ON-ROAD BIKEWAY NETWORK . ITEM IW 1. Retro-fit existing road with B bike lanes (line painting) 2. Add 1.5m Bike Lane as G part of the construction of a new road 3. Add 1.5m Bike Lane as G part of a road scheduled for widening/reconstruction 4. Add 1.5m Bike Lane on existing road as part of a LKM separate/stand-alone Qroject3 5. Add 1.2m Paved Shoulder G when existi ng road is scheduled of resurfacing 6. Add 1.2m Paved Shoulder G as part of a separate/stand alone Qroject3 7. Retro-fit existing road with wide-shared use lane (on LKM typical road with 1 lane each direction)5 8. Retro-fit existing road with wide-shared use lane (on LKM typical road with 2 lanes in each direction) 9. Widen Curb Lane as part G of the construction of a new road 10. Widen Curb Lane as part G of a road scheduled for widen i ng/reconstruction 11. Widen Curb Lane as part G of separate/stand-alone _Qroject3 August 2008 UNIT PRICE 2008 DOLLARS1 $13,000 $205,000 $505,000 $605,000 $55,000 $80,000 $7,000 $13,000 $70,000 $220,000 $300,000 COMMENTS/ASSUMPTIONS Note: unit prices for LKM are for both sides of a road unless otherwise noted (aQQlies to on-road routes only). I Repaint only (includes removal of existing lines, repainting of lane markings, addition of bike lane symbol every 200m, addition of bike lane road signage) I Cost of additional asphalt and markings - road project pays for curbs, CB leads, road pavement structure I Cost of additional asphalt and markings - road project pays for existing pavement removal, curbs, CB leads, road pavement structure Cost of additional asphalt and markings, curbs, CB leads, road pavement structure all borne by cycling project I Cost of additional asphalt over existing granular base and granular shoulder, includes 80mm depth of asphalt For AADT > 3000 vQd I Cost of additional asphalt over existing granular base and granular shoulder, includes 80mm depth of asphalt For AADT > 3000 vQd Repaint only (includes removal of existing lines, repainting of lane markings, addition of sharrow symbol every 75m, addition of share the road signage) Repaint only (includes removal of existing lines, repainting of lane markings, addition of sharrow symbol every 75m (durable paint), addition of share the road signage) I Cost of additional asphalt 0.5m and markings - road project pays for curbs, CB leads, road pavement structure I Cost of additional asphalt and markings - road project pays for existing pavement removal, curbs, CB leads, road pavement structure I Full reconstruction cost for road widening by 0.5m for both sides Page 92 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN . PART B. ON-ROAD BIKEWAY NETWORK IW COMMENTS/ASSUMPTIONS UNIT PRICE Note: unit prices for LKM are for both sides of a road ITEM 2008 DOLLARS1 unless otherwise noted (aQQlies to on-road routes only). 12. On-road signed route in Assumes one "bike route" sign each side per kilometre in rural rural area areas (two signs total), assumes cost to supply and install LKM $400 each sign = $200.00. Does not include allowance for other route signing systems (i.e. street blade signing, route maQ/orientation signingJ 13. On-road signed route in Assumes five "bike route" signs each side per kilometre in urban area urban areas (10 signs total), assumes cost to supply and LKM $2,000 install each sign = $200.00 Does not include allowance for other route signing systems (i.e. street blade signing, route maQ/orientation signing) 14. Replace catch basin GI 1 Price varies by municipality and supplier covers with bicycle friendly $260 model 15. Construct Median Refuge I each II $20,000 I Average price for basic refuge with curbs, no pedestrian signals 16. Construct neighbourhood I each II 5,000-60,000 I Prices vary depending on conditions and complexity. $10,000 traffic circle used as benchmark for typical for master plan costing 17. Construct Pedestrian 01 1 Varies depending on number of signal heads required activated traffic signal $80,000 (IPS) 18. Repaint/Restripe urban I LKM II $12,000 I Line removal and repainting average 4 lane road roadway 19. Traffic Signs - On-road I each II $200 I Per Ontario Ministry of Transportation specifications NOTES: 1. Unit Prices Reflect 2008 Dollars, based on projects in southern Ontario. They do not include the cost of property acquisition, utility relocations, retaining walls, excessive grading, or major roadside drainage works unless noted 2. LKM = Linear kilometre 3. Unit pricing for installing on road cycling facilities as a separate project. Unit Prices for reference 4. Bolded and underlined unit Drices are typically used to estimate network costs for the Implementation Plan. Other unit prices are provided for reference. 6.2 AT Network Implementation Meeting the objectives of the AT Plan will be challenging. It requires the dedication of not only funds to construct and maintain the routes and programs, but also human resources to plan and design the routes, seek outside funding, implement policies and programs, monitor progress, and engage stakeholders and the public in supporting it. CBRM staff and the AT Committee are the key human resources to effectively move forward on the plan implementation. It is recommended that cBRM explicitly define cBRM staff requirements and support the AT Committee during implementation of the AT Plan. 6.2.1 PHASING Exhibits 6.2 to 6.19 illustrate the proposed two phases of the implementation plan for bikeways, multi-use trails and sidewalks for the region and the core communities. The Recommended August 2008 Page 93 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN Bikeway Network is comprised of routes on Federal lands, along Provincial roads, along CBRM roads, and in CBRM parks and open space. The location of recommended network routes may be subject to change through more detailed technical studies and community consultation, where warranted, prior to the implementation of individual routes. At the same time however, the extensive community effort that established the overall directions of this plan and the recommended network must be respected. Therefore, specific changes to the recommended Active Transportation network should be evaluated in the context of such a decision's impact upon the overall AT Network and accompanying vision for Active Transportation in CBRM. / August 2008 Page 94 J ::t:.. g. a r\. o 1"\ f1) Q ~ C\ ..... a '" tb Q:J ~ o ex, m ~ ~ J ~7 w ;,:::N :3 \ h) ?/ Exhibit 6.2 CBRM Active Transportation Plan - Network Implementation Strategy Short Term Bicycle Facilities - Region KI-='l IBI . ".n",' Vi Stantec The location of recommended network routes may be subject to change through more detailed technical studies and community consultation, where warranted, prior to the implementation of individual routes. At the same time however, the extensive community effort that established the overall directions of this plan and the recommended network must be respected. Therefore, specific changes to the recommended Active Transportation network should be evaluated in the context of such a decision's impact upon the overall AT Network and accompanying vision for Active Transportation in CBRM. In Association with Catherine O'Brien and Vibe Creative Group ~ . >>~ ~),\ ~ ! ,~ ' ,I \J ~ { , f~' o ;jjI 3 l:II ~. iii ~. " ..... Q " f1) Q:J ~ -'\ "h) Exhibit 6.3 CBRM Active Transportation Plan - Network Implementation Strategy Long Term Bicycle Facilities - Region Xi}-I\ IBl ~~ (.ROUI' t~; The location of recommended network routes may be subject to change through more detailed technical studies and community consultation, where warranted, prior to the implementation of individual routes. At the same time however, the extensive community effort that established the overall directions of this plan and the recommended network must be respected. Therefore, specific changes to the recommended Active Transportation network should be evaluated in the context of such a decision's impact upon the overall AT Network and accompanying vision for Active Transportation in CBRM. ~ V) Stantec In Association with Catherine O'Brien and Vibe Creative Group :t:.. g. a r\" o 1"\ f1) Q ~ o ex, m ~ ~ ~7 w ;,:::N :3 s: :;. ~ ~ f1) '" "" ~ ~~ ";:l (\) .....::: ?J ~Q 0.. ~.. ~? ~a^!:lEl~8!lUB\lV' o ~ ~ ~ St~f" (:5" ~ .- ,.... ~ ~ Q lom"Sf ~ "03" ;'" - ~'"' \( ~ reef CJ/I}...C'I ... Q~ ~ I utr6l6l $1 fI ! . 3 ~ ~ t. i-L:t -. 6)" EruerY.Stre ---r-lJb d ::. , let l ~ () ~ ~ ~ OJ (j) {J 'i-Neville-Street s- a.. c" ~ ~ Q 'c:: ~~~ I) " Q 1"\ f1) ~ Q 'c:: :x: Q ~ a- Q c:: ~ o i-J J 0 3':;- " "2.~ r- ~ ID ::::I :I> :;;: 3 I~ n "ll m Q. g' g, :< ~. \/I ~ III ID Ie ~. '< o ~ o m ~7 o ^OJ :3 Exhibit 6.4 CBRM Active Transportation Plan - Network Implementation Strategy Short Term Pedestrian Facilities - Glace Bay '!"'"".i.,...-.....~...'..".....-... "# ,. ~ fi"~ ~. . .'!"V! t.:;'~ ' IBI tiROUI' f} Stantec The location of recommended network routes may be subject to change through more detailed technical studies and community consultation, where warranted, prior to the implementation of individual routes. At the same time however, the extensive community effort that established the overall directions of this plan and the recommended network must be respected. Therefore, specific changes to the recommended Active Transportation network should be evaluated in the context of such a decision's impact upon the overall AT Network and accompanying vision for Active Transportation in CBRM. In Association with Catherine O'Brien and Vibe Creative Group s- a.. c" ~ ~ Q 'c:: " Q 1"\ f1) ~ Q 'c:: :x: Q ~ a- Q c:: ~ o i-J I I I 0 0 3":;- :;, 'E.~ lQ ~ ~ ID ::;, '5: 3 '5: 3 I~ "'\J "'\J ~ c.. c.. g' :< ~. :< ~. \1'1 III ID ;:i: I.Q ~. ~. '< o ~ o m ~7 o ^OJ :3 Exhibit 6.5 CBRM Active Transportation Plan - Network Implementation Strategy Long Term Pedestrian Facilities - Glace Bay '!"'"".i.,...-.....~...'..".....-... "# ,. ~ fi"~ ~~ . .'!"V! t.:;'~ ' IBI tiROUI' f} Stantec The location of recommended network routes may be subject to change through more detailed technical studies and community consultation, where warranted, prior to the implementation of individual routes. At the same time however, the extensive community effort that established the overall directions of this plan and the recommended network must be respected. Therefore, specific changes to the recommended Active Transportation network should be evaluated in the context of such a decision's impact upon the overall AT Network and accompanying vision for Active Transportation in CBRM. In Association with Catherine O'Brien and Vibe Creative Group ~~ ";:l (\) .....::: ?J ~Q G- -. "'] ~.....---a^!~S'''!lUB\l'o' Statio/j}.. ~ r ~. Street cWI}.. .. I \S'tr(9(9f. 111 ! . Eme~.S~eet ~lJ~ d I Pi ~ OJ (j) {J 'i-Neville-Street ~~~ I) J I I I I I 0 3":;;- aJ " 'E..~ ~ r- ~ ID ~ > <E 3 i~ n \li:I ~. m iii g" :;: \/I III ~. ID I.Q '< Exhibit 6.6 CBRM Active Transportation Plan - Network Implementation Strategy Short Term Bicycle Facilities - Glace Bay 'I":~i3i:..........:...'~.... .~_...-.... ft. . ,~,. ~~- ..:! ~; IBI (.ROUI' . Stantec The location of recommended network routes may be subject to change through more detailed technical studies and community consultation, where warranted, prior to the implementation of individual routes. At the same time however, the extensive community effort that established the overall directions of this plan and the recommended network must be respected. Therefore, specific changes to the recommended Active Transportation network should be evaluated in the context of such a decision's impact upon the overall AT Network and accompanying vision for Active Transportation in CBRM. In Association with Catherine O'Brien and Vibe Creative Group ~ Q a r\" o 1"\ f1) Q ~ o i-J o ~ o m ~7 o ^OJ :3 ~ ~ Exhibit 6.7 CBRM Active Transportation Plan - Network Implementation Strategy Long Term Bicycle Facilities - Glace Bay ~~~ I) I I I I I ~ II 3 s: <E lJ:l ~. iD :;: ~. ~.i.. ..~..,...~..._....-. .;, .,' ~ .t){, ir ~ .~...~ - IBI tiROUl' . s: <E' :;: Stantec The location of recommended network routes may be subject to change through more detailed technical studies and community consultation, where warranted, prior to the implementation of individual routes. At the same time however, the extensive community effort that established the overall directions of this plan and the recommended network must be respected. Therefore, specific changes to the recommended Active Transportation network should be evaluated in the context of such a decision's impact upon the overall AT Network and accompanying vision for Active Transportation in CBRM. In Association with Catherine O'Brien and Vibe Creative Group :t=. g. a r\" o 1"\ f1) Q ~ o i-J o ~ o m ~7 o ^OJ :3 D ~t::J ..:J ~ ~ /<$>1'6> 'lJ :.::0", /~ 0'<~1. 6>~o<$>O' ~ ;1:"} r--,&;g ~,*p' if{? l\t,oY>'s, ~ l) \ Cf 't- ? ~ ~r;;- .z. c: \"8{j~ %; "lres'Road.. ~. "- ?l (e,;/Ie. ~a' , Road~ e Mc!\, / en:;:ie'Street VVebbs'&ane 9i'\}o.\:lQ\S-e9S 0' ) /r s- a.. s" ~ OJ Q '< [' \ 16 ~ j;,ga"B each'Roaa l"- S" \Q Q ~ 3':;- "2.~ ID ::::I I~ g' \/I III ID Ie '< ~~ ~=e m ~ ." o ~ c Exhibit 6.8 CBRM Active Transportation Plan - Network Implementation Strategy Short Term Pedestrian Facilities - New Waterford IBI t.iROUI' The location of recommended network routes may be subject to change through more detailed technical studies and community consultation, where warranted, prior to the implementation of individual routes. At the same time however, the extensive community effort that established the overall directions of this plan and the recommended network must be respected. Therefore, specific changes to the recommended Active Transportation network should be evaluated in the context of such a decision's impact upon the overall AT Network and accompanying vision for Active Transportation in CBRM. ~~ ~ ~ ~ t f) Stantec In Association with Catherine O'Brien and Vibe Creative Group :t:.. g. a r\" o 1"\ f1) Q ~ o ~ o ~ o 0, ~7 o ^O:l :3 KiA ~~ t~; In Association with Catherine O'Brien and Vibe Creative Group ( \ '" , u ,p ., /-'9. j:t.J /' ~~,. / <~..,< .~~~ (I<?O' I' . - ,'/ .~\0' j I \.r .. J? \ I "\ ; ~ !f '%';---$,l{'1f~. '0: '~Qad... ~ ~~ (~l" jv::;;~ ~ /II~O/Jd~ '.tC/{fJ ~lllzJe 'SlifJot ~bc$'kaf1'e 1'-S~~S a......G.~ ~#'l t /~ ) r I-f..n /~. ~~y; / ~ ~ ~.1( '"~ti ~o..... ~l:;t}' :i' Q" c" ~ Q:J Q "< I t. ?- t ~\ ""if\QIlIl' q"~!',h.Roa.1::JJ ro- 5- \Q Q ~ o :;, lQ ~ 3 "\J C. ~. ;:i: ~. 3":;- 'E.~ ID :;, I~ g' \1'1 III ID I.Q '< ~~ ~:e m ~ ." o ~ c Exhibit 6.9 CBRM Active Transportation Plan - Network Implementation Strategy Long Term Pedestrian Facilities - New Waterford IBI tiROUl' The location of recommended network routes may be subject to change through more detailed technical studies and community consultation, where warranted, prior to the implementation of individual routes. At the same time however, the extensive community effort that established the overall directions of this plan and the recommended network must be respected. Therefore, specific changes to the recommended Active Transportation network should be evaluated in the context of such a decision's impact upon the overall AT Network and accompanying vision for Active Transportation in CBRM. \~ iJ\~ \ %. ~. ~ Stantec :b g. a r\" o 1"\ f1) Q ~ o ~ o ~ o 0, ~7 o ;:'\00 3 D ~t::J ..:J ~ ~ /<$>1'6> 'lJ :.::0", /~ 0'<~1. 6>~o<$>O' ~ ;1:"} r--,&;g ~,*p' if{? l\t,oY>'s, ~ l) \ Cf 't- ? ~ ~r;;- .z. c: \"8{j~ %; "lres'Road.. ~. "- ?l (e,;/Ie. ~a' , Road~ e Mc!\, / en:;:ie'Street VVebbs'&ane 9i'\}o.\:lQ\S-e9S 0' ) /r 5' a.. i:i" ~ ~ ~ [' \ 16 ~ j;,ga"B each'Roaa .... :;" 'C Q ~ 3":;;- o 'E.~ ~ ID ~ ! ;,..; Co ~. iii g" \/I III if ~ ~~ ~:e m ~ ." o ~ c Exhibit 6.10 CBRM Active Transportation Plan - Network Implementation Strategy Short Term Bicycle Facilities - New Waterford 'I":~i3i:..........:...'~.... .~_...-.... ft. . ,~,. ~~- ..:! ~; IBI (.ROUI' The location of recommended network routes may be subject to change through more detailed technical studies and community consultation, where warranted, prior to the implementation of individual routes. At the same time however, the extensive community effort that established the overall directions of this plan and the recommended network must be respected. Therefore, specific changes to the recommended Active Transportation network should be evaluated in the context of such a decision's impact upon the overall AT Network and accompanying vision for Active Transportation in CBRM. ~~ ~ ~ ~ t . Stantec In Association with Catherine O'Brien and Vibe Creative Group ~ Q a r\" o 1"\ f1) Q ~ o ~ o ~ o 0, ~7 o ^O:l :3 D ~<2J ..:J ~ ~ /<$>1'6> 'lJ :.::0", /~ 0'<~1. 6>~o<$>O' \0) J i r;- f s- a.. ti" ~ ~ Q '< 0 0 3":;;- ~ Z ~ 'E.~ m \Q ~ ~ t1) ::s :e US' 3 3 i~ ~ lJ:l lJ:l m ~. ~. ~ iD iD g' " VI 0 III ~ ~. ~. t1) C lC '< Exhibit 6.11 CBRM Active Transportation Plan - Network Implementation Strategy Long Term Bicycle Facilities - New Waterford ~.i.. ..~..'...~....""-. .;, .,' ~ .t){, ir ~ .~...~ - IBI tiROUl' The location of recommended network routes may be subject to change through more detailed technical studies and community consultation, where warranted, prior to the implementation of individual routes. At the same time however, the extensive community effort that established the overall directions of this plan and the recommended network must be respected. Therefore, specific changes to the recommended Active Transportation network should be evaluated in the context of such a decision's impact upon the overall AT Network and accompanying vision for Active Transportation in CBRM. ~~ ~ 16 ~ t . Stantec In Association with Catherine O'Brien and Vibe Creative Group :t=. g. a r\" o 1"\ f1) Q ~ o ~ o ~ o 0, ~7 o ^O:l :3 ~ ~ ~ :x: Q ""'I: Q" Q s::: ""'I: ~ ::b ~ ~ It) ~ 9 Q ~ ~ !!.. o 3":; ~>z /D=i l~ C Z 0 ;;;: 3c.. C~ ~ ~ Z -I Q. ~. 'm J: g ~ -< "" :; ~. ~ s -< !!l. - C ~ Z Z ~. ;m m ."" -< g? o ~ ;b ~~ o 0, o ~ o ~ ~+ o ^O:l :3 Exhibit 6.12 CBRM Active Transportation Plan - Network Implementation Strategy Short Term Pedestrian Facilities - North Side A.~I~:'7 ' '. '~~ I~.,_.~ ~~; IBI calOUl' . Stantec The location of recommended network routes may be subject to change through more detailed technical studies and community consultation, where warranted, prior to the implementation of individual routes. At the same time however, the extensive community effort that established the overall directions of this plan and the recommended network must be respected. Therefore, specific changes to the recommended Active Transportation network should be evaluated in the context of such a decision's impact upon the overall AT Network and accompanying vision for Active Transportation in CBRM. In Association with Catherine O'Brien and Vibe Creative Group ~ Q. ~ ~ :x: Q "'t 0" () s:: "'t /~'> / "'tJ ~ ii) ..... Q ~ /tJ; 9,' to :.0' (/'l ~ (\) ~, o il) 0.: V. :'" :b ~ Q. "'t f1) ~ 9 Q ~ ~ !!. 0 I I I 0 3":;- :;, 'E.~ lQ ~ ~ ID :;, '5: 3 '5: 3 I~ "\J "\J l c. c. '" g" ,,~ :< ~. :< ~. VI ~ III ID ;:i: \,Q ~. ~. '< o N o :r:.. o 0> '"' + o /\0> 3 Exhibit 6"13 CBRM Active Transportation Plan - Network Implementation Strategy Long Term Pedestrian Facilities - North Side W"I....'..~ ~. . .~ A ...~ 'ttt... ..~L,f :.r~~~ ~; IBI tiROUl' . Stantec The location of recommended network routes may be subject to change through more detailed technical studies and community consultation, where warranted, prior to the implementation of individual routes. At the same time however, the extensive community effort that established the overall directions of this plan and the recommended network must be respected. Therefore, specific changes to the recommended Active Transportation network should be evaluated in the context of such a decision's impact upon the overall AT Network and accompanying vision for Active Transportation in CBRM. In Association with Catherine O'Brien and Vibe Creative Group ~ g. ~ :x: Q ~ Q" Q s:: ~ ~ :b ~ ~ f1) ~ 9 Q ~ ~ !!.. I I I I I 3":;;- o 'E.~ ~ ID ~ ! ;,..; Co ~. iii g" \/I III if ~ "'>2 -<20 CC::a 2 -I m ::t: -< '" S -< - C 2 2 m m '" -< g? o ~ 1 ~ ~~ o 0, o ~ o ~ <E :;: ~+ o ^O:l :3 Exhibit 6.14 CBRM Active Transportation Plan - Network Implementation Strategy Short Term Bicycle Facilities - North Side ~.?ii.."".'.~... -.. .ui n, ~L,~ 'I "'.. . .. t~t IBI t;ROUI' . Stantec The location of recommended network routes may be subject to change through more detailed technical studies and community consultation, where warranted, prior to the implementation of individual routes. At the same time however, the extensive community effort that established the overall directions of this plan and the recommended network must be respected. Therefore, specific changes to the recommended Active Transportation network should be evaluated in the context of such a decision's impact upon the overall AT Network and accompanying vision for Active Transportation in CBRM. In Association with Catherine O'Brien and Vibe Creative Group ~ ~ ~ :x: Q ~ C' () s::: ~ ~ :b ~ ~ f1) ~ 9 Q ~ ~ !!.. -'- 0 0 3":;;- '" > ~ 'E.~ -< \Q ~ Z ~ t1) ::s C 3 s: 3 i~ c lJ:l lJ:l Z ~. ~. m iD iD g" -< :;: VI ~ III ~. ~. t1) lC Z '< m '" o ~ o ~ o 0, ~+ o ^O:l :3 Exhibit 6.15 CBRM Active Transportation Plan - Network Implementation Strategy Long Term Bicycle Facilities - North Side ~B""".i"'S ..;.... ~ A... f! ~L, . I,. ".. ." t~t IBI t;ROUI' . Stantec The location of recommended network routes may be subject to change through more detailed technical studies and community consultation, where warranted, prior to the implementation of individual routes. At the same time however, the extensive community effort that established the overall directions of this plan and the recommended network must be respected. Therefore, specific changes to the recommended Active Transportation network should be evaluated in the context of such a decision's impact upon the overall AT Network and accompanying vision for Active Transportation in CBRM. In Association with Catherine O'Brien and Vibe Creative Group ~ ~ --r- . ,,- ,-: ~ ~ g. ~ :x: Q "" Q" () s::: "" ~ #"90'" ~ ~~~. ~<b~ 's. I"~~ i:')fe r '0'0.",\ ,...~ 3':; v. C\ "2.~ -< ~ 3~ C m ~ Jl2:!:i g. ~ m ~ :I> ~ !!l. ~ ~ m '< :I> Exhibit 6.16 CBRM Active Transportation Plan - Network Implementation Strategy Short Term Pedestrian Facilities - Sydney ~~""..~ ~~ .'.~ '.,~ ... ',. .~~ t~, IBI tiROUI' . Stantec The location of recommended network routes may be subject to change through more detailed technical studies and community consultation, where warranted, prior to the implementation of individual routes. At the same time however, the extensive community effort that established the overall directions of this plan and the recommended network must be respected. Therefore, specific changes to the recommended Active Transportation network should be evaluated in the context of such a decision's impact upon the overall AT Network and accompanying vision for Active Transportation in CBRM. In Association with Catherine O'Brien and Vibe Creative Group ~ ~ -r- Q~ ~- -If ~'i!... ~ 5JJO ~ . ,,- ,-: ( ~/7 ~ ~ ~ ~ :x: Q ""'I: CI" Q s::: ""'I: ~ &~O~ ~}~oey ~~~.v 's-<b~ ~r~~. i:'),fe ~ '0'00"", 4 3":;- 'E.~ ID :;, I~ g" \1'1 III ID I.Q '< .....0" o :;, lQ ~ 3 "'\J c.. ~. ;:i: ~. o ~ o U, o ~ Exhibit 6.17 CBRM Active Transportation Plan - Network Implementation Strategy Long Term Pedestrian Facilities - Sydney IBI t.iROUI' Stantec The location of recommended network routes may be subject to change through more detailed technical studies and community consultation, where warranted, prior to the implementation of individual routes. At the same time however, the extensive community effort that established the overall directions of this plan and the recommended network must be respected. Therefore, specific changes to the recommended Active Transportation network should be evaluated in the context of such a decision's impact upon the overall AT Network and accompanying vision for Active Transportation in CBRM. In Association with Catherine O'Brien and Vibe Creative Group ~ ~ --r- . ,,- ,-: ~ ~ ~ ~ ::t Q """ c- o s::: """ ~ #"90'" ~ ~~~. ~<b~ 's. I"~~ i:')fe r '0'0.",\ ,...~ ( s 3':; '" ~ ~~ -< 3 ~a. ~ tJl s- 12 ~. ... m g" ~ ~ )> ~. ~ ~ '< m )> Exhibit 6.18 CBRM Active Transportation Plan - Network Implementation Strategy Short Term Bicycle Facilities - Sydney A.~I~:'7 '. '~~ I~.,_.~ ~~; IBI calOUl' . Stantec The location of recommended network routes may be subject to change through more detailed technical studies and community consultation, where warranted, prior to the implementation of individual routes. At the same time however, the extensive community effort that established the overall directions of this plan and the recommended network must be respected. Therefore, specific changes to the recommended Active Transportation network should be evaluated in the context of such a decision's impact upon the overall AT Network and accompanying vision for Active Transportation in CBRM. In Association with Catherine O'Brien and Vibe Creative Group -r- Q~ ~- -If ~'i!... ~ 5JJO ~ ,-: ~ ~ Q. ~ ~ :x: Q ""t 0- () s:: ""t ~ 0~ ty.&~ ~}~ ~~~~ ~<b~ ~/: ~~. i:'),fe ~ '0'00"", 4 I I g 3":; '" C\ "2.~ -< ~ ~3~~m ! ~ 12 > ~.~. m ~ iD g -< m ~ )> ~ ;; ~ ~. ~ m )> .....0" s: <E' :;: o ~ 3 I:lI ~. iD ::;: ~. o ~ o U, o ~ Exhibit 6.19 CBRM Active Transportation Plan - Network Implementation Strategy Long Term Bicycle Facilities - Sydney ;,i.....;~ A.."'..~~ ~' .'''i.~ .. ..' .!!.' t! "f....=-_&. . ""'~. ; IBI t.ROUI' . Stantec The location of recommended network routes may be subject to change through more detailed technical studies and community consultation, where warranted, prior to the implementation of individual routes. At the same time however, the extensive community effort that established the overall directions of this plan and the recommended network must be respected. Therefore, specific changes to the recommended Active Transportation network should be evaluated in the context of such a decision's impact upon the overall AT Network and accompanying vision for Active Transportation in CBRM. In Association with Catherine O'Brien and Vibe Creative Group 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN 6.2.2 PROBABLE COST OF IMPLEMENTATION A summary of opinion of probable construction cost to implement the short-term and long-term phases is presented in Exhibit 6.20. Exhibit 6.20: AT Network Probable Cost of Construction by Phase I PHASE PROJECT TYPE II PROBABLE COST II 2008 DOLLARS Short Term ILfugnature Projects I Other Routes Subtotal I L T ILfugnature Projects ong erm I Other Routes Subtotal I I Grand Total $3,830,000 $1,152,000 $4,982,000 $2,594,000 $12,522,000 $15,116,000 $20,098,000 Exhibits 6.21 and 6.22 provide an opinion of probable construction cost to implement the AT Network according to facility type, phasing (short and long-term). Exhibit 6.21 provides a summary for the Signature Projects and Exhibit 6.22 provides a summary for all other routes in the AT Network. Exhibit 6.21: AT Network Cost Summary by Signature Project and Phase Whitney Pier Heritage Trail 1.9 $217,000 I~Qhalt Qathway Westmount Road Upgrades 6.1 $ 680,000 Sidewalk upgrades and on-road ;hared-use lanes Victoria Road in Whitney Pier 3.5 $ 153,000 Sidewalk uQgrades CBU to Glace Bay via DEVCO 17.8 $ 1,599,000 -ligh-quality granular and asphalt Rail Line llulti-use trail New Waterford "Loop" 3.5 $ 222,000 Sidewalk upgrades and on-road ;hared-use lanes Downtown Sydney to Mayflower 6.6 $ 214,000 Sidewalk upgrades and on-road Mall ;hared-use lanes Greenlink Trails 4.3 $ 383,000 3ranular and asphalt multi-use Jail George Street 4.4 $ 201,000 Sidewalk uQ.grades and bike lanes King's Road 3.5 $161,000 ~e-stripe for bike lanes and some ;idewalk uQgrades Subtotal 51.6 $ 3,830,000 August 2008 Page 113 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN New Waterford Highway 14.0 $ 769,000 Sidewalk one side of street, Javed shoulders l\sphalt multi-use trail in roadway ~OW =easibility study $ 1,800,000 $ 25,000 Subtotal 26.0 $ 2,594,000 Total Signature Projects 77.6 $ 6,424,000 Note: Does not include the various walking/cycling improvements on the Northside that are included in Table 6.22. Sydney to Reserve via Grand Lake Multi-Use Trail Cross Harbour Ferry Exhibit 6.22: AT Network Cost Summary by Facility Type and Phase (all routes other than those identified as Signature Routes in Exhibit 6.21) Pedestrian Route II Sidewalk one side of street I Sidewalk two sides of street ~Qhalt Multi-use Path I Granular Surfaced Multi-use Path I Bike Lane I Wide Shared Use Lane I Paved Shoulder Lfugned-only Route Subtotal Ii 135 26 o o o o o o 161 n/a n/a n/a n/a n/a n/a n/a n/a Shared Pedestrian and Cycling Route Cycl i ng Route .. PROPOSED FACILITIES-SHORT TERM2 Pedestrian Route II Sidewalk one side of street 21 $ 571,000 I Sidewalk two sides of street 7 $ 311 ,000 Shared Pedestrian ~Qhalt Multi-use Path 0 n/a and Cycling Route I Granular Surfaced Multi-use Path 2 $ 61,000 Cycl i ng Route I Bike Lane 0.3 $ 3,000 I Wide Shared Use Lane 13 $ 95,000 I Paved Shoulder 2 $ 86,000 Lfugned-only Route 12 $ 25,000 Subtotal Ii 57 $ 1,152,000 August 2008 Page 114 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN Pedestrian Route II Sidewalk one side of street I Sidewalk two sides of street ~Qhalt Multi-use Path I Granular Surfaced Multi-use Path I Bike Lane I Wide Shared Use Lane I Paved Shoulder Lfugned-only Route Subtotal Ii TOTAL I 48 56 3 11 12 44 49 34 257 314 $1,219,000 $ 3,834,000 $ 373,000 $ 328,000 $ 3,199,000 $ 1,880,000 $1,620,000 $ 69,000 $ 12,522,000 $13,674,000 Shared Pedestrian and Cycling Route Cycl i ng Route Notes: 1. Existing facilities are only those facilities existing within the designated Active Transportation network. 2. Proposed facilities do not include Signature Projects except those on the Northside. See Table 6.21. 3. Probable Long-term Cost does not include designated Scenic Bicycle Routes. 6.2.3 AT NETWORK FUNDING The network is expected to be funded as follows: . Sidewalks, multi-use trails and bikeways on new roads within new subdivisions should be built and funded by development, through subdivision agreements with the CBRM. . Sidewalks, multi-use trails and bikeways in established areas of CBRM will be funded one-third through CBRM tax revenues leveraging additional Provincial and Federal funding for active transportation, climate change and environmental initiatives. . Funding through financial contributions, partnerships, and in-kind donations of labour and materials may help to offset the costs to CBRM for the development and maintenance of some parts of the Active Transportation Network. Multi-use trails are in particular a good opportunity to develop community partnerships with trail interest groups and service clubs. These kinds of partnerships also playa significant role in fostering community pride and ownership for long-term operation and maintenance of the corridor. . Some trail construction costs may be the responsibility of agencies other than the CBRM, such as the potential DEVCO Rail Trail, and part of the Downtown Sydney to Mayflower Mall supported by the Tar Ponds Agency (Whitney Pier to the Sydney Harbour boardwalk) Funding for the AT Network is assumed to come one-third from CBRM with the other two-thirds leveraged from other levels of governments, agencies, grants or donations. Based on this assumption, the funding requirements for the AT Network are as follows (2008 Dollars): . Short-term (over 5 years)-$4.98 M, equivalent to CBRM funding $332,000/year August 2008 Page 115 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN . Long-term (over 15 years)-$15.12 M, equivalent to CBRM funding $336,000/year 6.2.4 POTENTIAL PARTNERSHIPS During the course of the Active Transportation Study, it became clear that there are numerous governmental departments, agencies, community groups and stakeholders interested in being part of the implementation of the AT Network, to plan, design, construct, operate and/or maintain the routes in particular for the Signature Projects. The CBRM department involvement, provincial and federal governments/agencies and potential community partners are identified in Exhibit 6.23 for each Signature Project. Exhibit 6.23: Potential Partners for the Planning, Design, Operation and Maintenance of the Signature Projects . Engineering and Public I · Sydney and Area Chamber of George Street Bike Lanes Works Commerce . Planning King's Road Bike Lanes or . Engineering and Public . NS Transportation and . Velo Cape Breton off-road path Works Infrastructure Renewal . ACAP Cape Breton . Planning . ECBC . Recreation . Nova Scotia Lands . Whitney Pier Heritage Whitney Pier Heritage Trail . Engineering and Public . Sydney Tar Ponds Agency Society Works . ECBC . Recreation . NS Health Promotion and . Greenlink Protection . Rotary/Ki nsmen GreenLink . ECBC . Membertou . Cape Breton Regional HosQital . Planning . ECBC . Sydney and Area Chamber of Cross Harbour Ferry . Recreation . NS Transportation and Commerce Infrastructure Renewal Downtown Syd ney to . Engineering and Public . ECBC . Sydney and Area Chamber of Mayflower Mall Link Works . Sydney Tar Ponds Agency Commerce . Planning . Engineering and Public . Whitney Pier Heritage Victoria Road - Whitney Pier Works Society . Planning . Engineering and Public . NS Transportation and . Cape Breton University\ Sydney - Glace Bay Multi- Works Infrastructure Renewal . AcTraC use Path . Planning . Recreation . Engineering and Public . NS Transportation and . Velo Cape Breton Westmount Road Upgrades Works Infrastructure Renewal and Reduced Speed Limits . Planning . Pol ice Services August 2008 Page 116 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN North Sydney Walking and Cycling Improvements Sydney Mines Walking and Cycling Improvements DEVCO Rail Line Community Walking Loops New Waterford Highway Paved Shoulders . Engineering and Public Works . Planning . Pol ice Services . Engineering and Public Works . Planning . Pol ice Services . Engineering and Public Works . Planning . Recreation . Engineering and Public Works . Planning . Pol ice Services . Engineering and Public Works 6.3 Policy Implementation . CBVRSB . NS Health Promotion and Protection . CBVRSB . NS Health Promotion and Protection . Cape Breton Development Corporation . CBVRSB . NS Health Promotion and Protection . Department of Transportation . TRAX . TRAX . Youth Action Committee . Velo Cape Breton . Cape Breton Island Pathways . A TV Association of Nova Scotia . Trails Nova Scotia . Cape Breton Island Hoppers Volksport . Velo Cape Breton . Destination Cape Breton Implementation of the recommended policies, practices and programs will involve CBRM resources, funding and other partnerships. The CBRM departments and services that will be responsible for overseeing the implementation of each recommendation, other community partners that may be involved, and the time frame over which the implementation may take place not withstanding other CBRM priorities are presented in Exhibit 6.24. Exhibit 6.24: Implementation Schedule for Recommended Policies, Practices and Programs ~ead: CBRM Planning and Development-Planning Services Branch SUQQort: CBRM Legal DeQartment; AT Committee Lead: CBRM Planning and Development-Planning Services Branch Support: CBRM Legal Department; AT Committee . Adopt child and youth-friendly land-use planning policies and guidelines. . Consider changes to the CBRM's land use policy and regulations to require developers and owners to provide bicycle end-of-trip facilities, and create sites that are Qedestrian and bicycle-friendly August 2008 L 0-2 years Page 117 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN RECOMMENDED POLICY, PRACTICE OR II-~ PROGRAM CBRM DEPARTMENT AND PARTNERS FRAME . Create a program that will make it easier for property owners to address the lack of bicycle parking at existing developments . Provide design guidelines on bicycle end-of-trip facilities . Provide end-of-trip facilities at all CBRM-owned buildings . Consider updating design criteria and policies with regard to the location of sidewalks and their width for new urban and rural development and infill development . Through the secondary planning or draft plan of subdivision process, consider the bikeway network and integrate bike facilities to create new communities and neighbourhoods that are bicycle- friendly . Adopt accessible sidewalk design guidelines . Adopt design guidelines for the planning, design, signing and marking of bikeways . Adopt design guidelines for the planning and design of pedestrian facilities I Lead: CBRM Planning and Development-Development Service Branch Support: CBRM Legal Department; AT Committee; major emQloyers, Sydney and Area Chamber of Commerce Lead: CBRM Planning and Development-Development Service Branch Support: CBRM Engineering and Public Works Department, AT Committee Lead: CBRM Engineering and Public Works Department (Physical Plant Management) Support: CBRM Finance (Purchasing Section); CBRM Community Information Services-Recreation (Facilities) Lead: CBRM Planning and Development-Planning Services Branch Support: CBRM Engineering and Public Works Department (Maintenance, Construction, and Operation of Street and ROWs); CBRM Legal DeQartment; AT Committee Lead: CBRM Planning and Development-Planning Services Branch Support: CBRM Legal Department; AT Committee Lead: CBRM Engineering and Public Works Department (Maintenance, Construction, and Operation of Street and ROWs) Support: CBRM Planning and Development-Development Service Branch; CBRM Legal DeQartment; AT Committee Lead: CBRM Engineering and Public Works Department (Maintenance, Construction, and Operation of Street and ROWs) Support: CBRM Planning and Development-Development Service Branch; CBRM Legal DeQartment; AT Committee Lead: CBRM Engineering and Public Works Department (Maintenance, Construction, and Operation of Street and ROWs) Support: CBRM Planning and Development-Development Service Branch; CBRM Le al De artment; AT Committee 0-2 years 0-2 years Immediately 3-5 yea rs 0-2 years Immediately Immediately Immediately . Continue to support a CBRM AT Committee . Commit to the implementation of the recommended AT network August 2008 ~ead: CBRM Council Support: CBRM Planning and Development; CBRM Engineering and Public Works DeQartment Lead: CBRM Engineering and Public Works Department (Maintenance, Construction, and Operation of Street and ROWs; Parks & Grounds Maintenance & Development) Support: CBRM Planning and Development-Development Service Branch; AT Committee; DEVCO; Tar Ponds Agency; CBU; Glace Bay Y AC; GreenLink Park Society; Whitney Pier Historical Society Immediately On-going Page 118 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN RECOMMENDED POLICY, PRACTICE OR II-~ PROGRAM CBRM DEPARTMENT AND PARTNERS FRAME . Integrate transit with AT such as bike racks on buses, sidewalk links to stops, etc. . Develop a New Sidewalk Prioritization Program to address existing deficiencies in the sidewalk network in urban and rural communities . Routinely consider the needs of pedestrians and cyclists in transportation projects . Develop a strategy in partnership with the Province and Cape Breton municipalities to sign the bikeways . Collaborate with the Province of Nova Scotia in implementing cycle-tourism routes . Consider the development of a comprehensive Regional Trails Strategy for CBRM . Review the cost / benefits of paved shoulders on two-lane rural roadways Lead: CBRM Engineering and Public Works Department (Transit Cape Breton) Support: CBRM Engineering and Public Works Department (Maintenance, Construction, and Operation of Street and ROWs) ; AT Committee; Major Transit desti natio ns/ em Qloye rs Lead: CBRM Engineering and Public Works Department (Maintenance, Construction, and Operation of Street and ROWs) Support: CBRM Planning and Development-Development Service Branch; CBRM Legal DeQartment; AT Committee Lead: CBRM Engineering and Public Works Department (Maintenance, Construction, and Operation of Street and ROWs) SUQQort: AT Committee Lead: CBRM Engineering and Public Works Department (Maintenance, Construction, and Operation of Street and ROWs) Support: Province of Nova Scotia; Discover Cape Breton; Municipalities of the Counties of Victoria, Richmond and Inverness; AT Committee; Velo CaQe Breton Lead: Province of Nova Scotia Support: CBRM, Discover Cape Breton; ECBC; AT Committee; Velo CaQe Breton Lead: CBRM Planning and Development-Planning Services Branch Support: CBRM Engineering and Public Works Department (Parks & Grounds Maintenance & Development); CBRM Legal Department; ECBC; TCT; DEVCO; Tar Ponds Agency?; Other? ~ead: CBRM Engineering and Public Works Department (Maintenance, Construction, and Operation of Street and ROWs); Province of Nova Scotia .Support: CBRM Police Department; Public Health Services On-going 0-2 years On-going 3-5 yea rs L 0-2 years 0-2 years AT-SUPPORTIVE PRACTICES . Collaborate with Safe Routes to School programs . Collaborate with the Province of Nova Scotia and Destination Cape Breton in creating an AT map . Routinely consider the needs of cyclists and pedestrians in transportation services such as traffic data collection programs, and construction zones and traffic management Qlans August 2008 Lead: School boards Immediately Support: CBRM Engineering and Public Works Department (Maintenance, Construction, and Operation of Street and ROWs); AT Committee; Province of Nova Scotia; Public Health Services Lead: Province of Nova Scotia 0-2 years Support: CBRM Mapping; CBRM Engineering and Public Works Department (Maintenance, Construction, and Operation of Street and ROWs); CBRM Planning and Development-Planning Services Branch; AT Committee; Public Health Services (distribution) Lead: CBRM Engineering and Public Works Department Immediately (Maintenance, Construction, and Operation of Street and ROWs) Support: CBRM Mapping Page 119 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN RECOMMENDED POLICY, PRACTICE OR II-~ PROGRAM CBRM DEPARTMENT AND PARTNERS FRAME . Review current maintenance practices and priorities of on-road bikeways and multi-use pathways critical to the AT network. Consider the need for a road-reQair reQorting system. . Consider changes to sidewalk winter maintenance . Publish maps of the sidewalks that are currently CBRM's responsibility to clear of snow and ice . Set up a reporting system and publish an email or telephone contact so that poorly cleared sidewalks and curb ramps can be reported to CBRM and receive a res onse Lead: CBRM Engineering and Public Works Department (Maintenance, Construction, and Operation of Street and ROWs; Parks & Grounds Maintenance & Development) Support: AT Committee; Lead: CBRM Engineering and Public Works Department (Maintenance, Construction, and Operation of Street and ROWs) SUQ.Qort: CBRM Legal DeQartment; AT Committee Lead: CBRM Mapping Support: CBRM Engineering and Public Works Department (Maintenance, Construction, and Operation of Street and ROWs); AT Committee Lead: CBRM Engineering and Public Works Department (Maintenance, Construction, and Operation of Street and ROWs) Support: AT Committee 0-2 years 0-2 years Immediately 0-2 years . Collaborate with community partners to develop programs that shift transportation behaviours of CBRM staff and other large employers in the region . Develop a one portal information link on the CBRM's web site for information about active transQortation . Support community events and activities that encourage more walking and cycling . Collaborate on safety, education and enforcement campaigns and programs that focus on skills training and collision prevention . Consider introducing a Police on Bikes community Qolicing unit . Consider partnering with community stakeholders to deliver Kids CAN-BIKE in schools or as part of summer youth recreational day camp programs Lead: AcTraC Support: CBRM Engineering and Public Works Department (Cape Breton Transit); Velo Cape Breton; AT Committee; CBU; others Lead: CBRM Recreation Department Support: AcTraC, AT Committee; Public Health Services Lead: Various Support: CBRM Engineering and Public Works Department (Maintenance, Construction, and Operation of Street and ROWs); CBRM Police Department; CBRM Recreation DeQartment (Programs and SQecial Events) Lead: CBRM Police Department; school boards; Velo Cape Breton; AcTraC Support: CBRM Recreation Department (Programs and Special Events); CBU; Public Health Services; AT Committee Lead: CBRM Police Department Support: Velo Cape Breton; AcTraC Lead: Velo Cape Breton; AcTraC; School boards; CBRM Recreation Department (Programs) Support: AT Committee 3-5 yea rs 0-2 years On-going 0-2 years Immediately 0-2 years J:\Hamilton\pre-int\doc\15000 - IBI Files\15424 - CBRM AT Plan\10.0 Reports\FinaI\TTR-CBRM AT Plan Final Draft Report2008-07-09.doc\2008-08-15\N August 2008 Page 120 August 2008 APPENDIX A SUMMARY OF EXISTING POLICIES AND PROGRAMS ~ 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN EXISTING POLICIES AND PROGRAMS CBRM MUNICIPAL PLANNING STRATEGY AND LAND USE BY-LAW On August 25, 2004 CBRM Council adopted the Cape Breton Regional Municipality's first Municipal Planning Strategy and Land Use By-law. This new Municipal Planning Strategy and Land Use By- law replaced the 15 municipal planning strategies and land use by-laws adopted by the former municipalities of Cape Breton County prior to the 1995 amalgamation. The following polices address active transportation, walking and cycling (some text is bold for emphasis): Part 2-Policy 2a In the downtowns or central business districts it shall be a policy of Council to permit a wide range of business uses generally with little or no lot development restrictions with two specific exceptions.... Within designated core areas building setbacks shall be regulated to preserve the streetscape uniformity unless imaginative and attractive proposals are introduced that enhance the streetscape and encourage pedestrian use Part 5-Policy 4 It shall be a policy of Council to recognize the urban green space plan linking the waterfronts and downtowns of our major urban communities with their undeveloped hinterland via brooks flowing through the community towards the waterfront from its hinterland as a primary urban recreational land use objective. Once the CBRM's Municipal Planning Strategy is in effect, staff of the Planning, Engineering and Public Works, and Recreation Departments shall be directed to actively facilitate the completion of the trail system in each of the four urban concentrations. Part 5-Policy 5 It shall be a policy of Council to sanction the continued development of this rural trail network inventory by recognizing it as a legitimate funding project because of its potential as an important part of our recreational heritage with the potential to reap lifestyle and economic benefits for our constituents. Part 3-Policy 6c More passengers travel through the Marine Atlantic terminal than visit the Fortress of Louisbourg National Park. It shall be a policy of Council to delegate the CBRM's Economic Development Manager and staff of the Planning Department with the responsibility of organizing and managing an on-going dialogue between Marine Atlantic and any business association of downtown North Sydney. The objective being alleviating the pedestrian barriers separating the passenger terminus from North Sydney's waterfront boardwalk and downtown. Part 5-Policy 8 Recreational uses primarily providing a neighbourhood service that do not contribute significant adverse affects due to traffic, noise and scale, (e.g. playgrounds, public August 2008 Page A. 1 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN gardens, monument sites, pedestrian/bicycle trails, tennis coutts, and playing fields) are permitted in all communities and neighbourhoods of the CBRM. Part 7-Policy 12 It shall be a policy of Council to implement an active transportation plan for the CBRM, including a system of bicycle and walking trails. The staff of the Planning Department, Recreation Department, and the Department of Engineering and Public Works shall work with the Active Transportation Coalition of Cape Breton County and any other committee, organization, or association with goals towards an active lifestyle to formulate this plan. Policy 12 provides the direction to CBRM for undertaking this Active Transportation Plan. SECONDARY PLANNING STRATEGY & LAND USE BY-LAW FOR SYDNEY'S NORTH END The CBRM Council adopted a Secondary Planning Strategy and Land Use By-law for an area in the North End of Sydney on May 16, 2006. With respect to the Active Transportation Plan, this document includes policies that demonstrate the understanding within the CBRM of the importance of urban design on the pedestrian environment: 13. It shall be the policy of Council to include in the Land Use Bylaw provisions to allow buildings exceeding 35 ft. in height in the NEDF Zone. However, to ensure that the potential negative impacts... [the] development agreement shall have regard to the following criteria: . The design of the building shall be evaluated so as to ensure that at the street level it is conducive to pedestrian convenience and interest, by, for example, creating street level retail space, avoiding blank windowless walls adjacent to the sidewalk or through the use of features such as fountains, planters or decorative stone or brick work.. .. SIDEWALK CONSTRUCTION PROGRAMS The CBRM Engineering and Public Works Department has an annual $3M to $4M general capital budget for the construction/reconstruction of roadways and sidewalks. The projects that are undertaken are generated and agreed upon by staff and Council. The "needs", based on roadway and sidewalk conditions and requests from members of the public, is huge and far exceeds what can be undertaken on an annual basis within this budget. Staff attempt to complete longer and complete sections of roadway and sidewalk rehabilitation as opposed to piecemeal replacement. CBRM has completed two of a four year program funded jointly with the Province of Nova Scotia for the upgrade of arterial and collector roads linking to urban areas. These projects have included the construction of sidewalks as part of the urban roadway standard to be achieved. In 2008, the program is to include the upgrading of the asphalt path along grand Lake Road/Sydney Road to a concrete sidewalk from the May Flower Mall to Reserve Mines. The Nova Scotia Department of Transportation and Infrastructure Renewal does not install or August 2008 Page A.2 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN maintain sidewalks. Regardless of which government has jurisdiction over the roadway, CBRM or NSDOT, the sidewalk is the responsibility of CBRM. For J-class local residential roadways, the Province costs shares 500/0 to upgrade the roadway from gravel to asphalt, but adding sidewalks is the responsibility of CBRM. These roadways are typically in older residential areas on the fringe of urban areas with home owners typically paying the same property tax rate as the urban area. ON-ROAD BIKEWAYS The CBRM currently does not have any policies or guidelines regarding warrants or standards for the provision of paved shoulders for cyclists on rural roadways or on-road bikeways, such as bike lanes, on urban roadways. A few sections of rural roadways may have paved shoulders that can be used by cyclists, such as on Park Road in Florence, but they are not specifically designed or designated as bikeways. Some sixty "Share the Road" signs were erected in Cape Breton a few years ago on rural roads popular for cycling. Federal Initiatives CANADA - NOVA SCOTIA MUNICIPAL RURAL INFRASTRUCTURE FUND BUILDllNG CANAD,A S:tronge~ safert .o@'tter The CANADA - NOVA SCOTIA Municipal Rural Infrastructure Fund is funded by equal contributions from the Government of Canada, the Province of Nova Scotia and other partners including municipalities. It funds firstly "green" municipal infrastructure to ensure safe drinking water, clean air to breathe and more effective waste management systems, and secondly local transportation, cultural and recreational facilities, infrastructure supporting tourism, rural and remote telecommunications, high-speed Internet access for local public institutions, and affordable housing. Approved projects in 2007 included the Sydney Harbour Sanitary Sewer Intertceptor & Multi-use Trail with Federal/Provincial funding of $3.5M and CBRM funding of $1.8M. The Gas Tax Fund funds projects in support of municipal infrastructure that enhances the environment and quality of life. The eligible projects under the Canada-Nova Scotia Agreement on the Transfer of Federal Gas Tax Revenues includes "active transportation infrastructure (e.g, bike lanes), local roads, bridges and tunnels for Municipalities that enhance sustainability outcomes." CBRM has not yet funded any AT projects under this agreement. ECOMOBILITY .;~ACTION .US.j'n9 lJJSSi · lhfrlrLg' [BCitolf Transport Canada's ecoMOBILITY Program, with up to $10 million to invest, is part of the Government of Canada's ecoTRANSPORT strategy to address greenhouse gas emissions and air pollution from transportation sources. The ecoMOBILITY program aims to reduce emissions from the urban passenger transportation sector by helping municipalities attract residents to less polluting forms of transportation including walking, cycling, public transit and ridesharing (e.g. carpools). The ecoMOBILITY Program has two components: 1) Financial support to municipalities and regional transportation authorities for transportation demand management (TDM) projects that reduce emissions by shifting personal automobile August 2008 Page A.3 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN travel to other modes, reducing the number and length of car trips, and shifting trips to less congested times and routes. 2) Research and information to build national capacity to implement TDM measures through research, training and the development of resources. Applications are not yet available for this program. MOVING ON SUSTAINABLE TRANSPORTATION ,MOVING, a,'N' SU STAINABL,E TR..A.N SPOR'TA TION' nil .-"...._1-. - I .1 , I ~ C.,liR - · ........1,. t... POOL. ' - ~. ONLY , I Transport Canada created the Moving On Sustainable Transportation (MOST) program to help organizations implement demonstration, research, education and pilot projects that create and support new sustainable transportation options for Canadians. The MOST program will allocate approximately $3.2 million over a five-year period (fiscal year 2007-2008 to fiscal year 2011-2012) to promote these sustainable transportation objectives. Individuals, governments and political organizations are not eligible to apply for program funding or to be designated as lead proponents but are encouraged to partner with eligible organizations such as NGOs, community organizations, organizations and associations for First Nations and Aboriginal Peoples, educational and academic institutions, labour organizations, and businesses and industries and their associations. The MOST program funds to a maximum of 50 per cent of eligible costs and to a maximum of $150,000 over a three-year period. A list of previously funded projects is included on their web site, http://www.tc.ac.ca/proarams/environment/most/menu.htm, including a number of active transportation initiatives. URBAN TRANSPORTATION SHOWCASE PROGRAM Transport Canada's Urban Transportation Showcase Program (UTSP) was developed under the Government of Canada's Action Plan 2000 on Climate Change. The UTSP recently underwent a major review and has since been extended. UTSP highlights innovative sustainable transportation projects and issues in order to make clean, efficient and convenient transportation options a reality in Canada's cities and regions. Urban transportation showcases are multi-year initiatives that demonstrate and evaluate integrated approaches to reducing GHG emissions. Sample showcase elements include: . Transportation demand management (TDM) measures such as projects that build commuters' awareness and use of walking, cycling, transit, carpooling, vanpooling or telecommuting August 2008 Page A.4 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN . Community outreach measures that improve public understanding of travel's impacts on our environment, or help individuals make more sustainable travel choices . Low-cost infrastructure measures such as improved walking and cycling facilities The web site includes descriptions and links to the showcases, a TDM resource centre, research reports, urban directory to sustainable transportation links, and an image or photo database (http://www.tc.ac.ca/proarams/environment/UTSP/menu.htm). The City of Whitehorse showcase, The Whitehorse Driving Diet, includes $2.3 Mil for active transportation infrastructure. INNOVATIVE COMMUNITIES FUND ~. ~..~~. ~~~~I~~::d3 ~.~!.u~::..~.)~i:..~~. ~cm.u). ru.jql.1C I ~::t~~~~~:;~~~~~~~~i~~:~~~,~~~~~:~:~~~: ... Agenc)" du Canada atlantique investments that lead to long-term employment and economic capacity building in rural communities. The program is funded with $175 M over five years and eligible recipients include not-for-profit organizations such as municipalities, industry associations, economic development associations, local co-operatives, and educational institutions ( http://www.acoa.ca/e/fi n a ncia 1/ a i p/ co m m un itv. pdf). Provincial Initiatives SMART CHOICES FOR CLEANER ENERGY _ On October 20, 2005, the Nova Scotia Department of Energy released a green energy framework-Smart Choices for Cleaner Energy. The plan has three guiding themes including Smarl Choices for Developing Sustainable Transporlation Systems. It includes addressing transit services, "creating the right environment for establishing better links between urban systems and outlying communities.... [They} will encourage building on existing municipal transit systems in... the Cape Breton Regional Municipality. ACTIVE KIDS HEALTHY KIDS Active Kids Healthy Kids: A Physical Activity Strategy for Children and Youth in Nova Scotia is a strategy of the Nova Scotia Ministry of Health Promotion and Protection. One of its components is the Active Community Environments to make sure all children, youth, and families have access to safe and convenient natural and built environments for spontaneous and organized play, physical activity, and active transportation. Specific actions are outlined in Table 5.1 from the Strategy. August 2008 Page A.5 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN Active Kids Healthy Kids-Active Community Environments Act ions 3.1 Build support and encourage action lhat advances the active tra n sp 0 rta lion move men t. 3.1.1 Facilitate lhe formation of a provincial alllance 10 advance the Pathways for People Framework for Action, an agenda for active transportation. 3.1 .2 Co-host reglonall and provincial active transportation symposia with an emphasis on children, youth, and families. 3.1,3 Develop guidelines and an educational program for municipal leadersl plannerst and engineers about physical environments that facilitate active transportation and other physical activity in rural, suburban, and urban areas. 3.2 Promote and support growth of community and personal play spaces that encourage spontaneous physical activity (e,g., Ice Dreams). 3.3 Provide public with access to information on natural and built environments that support physical activity. --- ------- - -------- -- 3.4 Evolve Active and Safe Roules to Schools to help children. youth. and families use active transport between home, schoot and other neighbourhood destinations. Sta tus Partners New or fulure development HPP. RNS, EAC Developing HPP. HCCYD, EAC, RNSI GFG HPP, SNSMR New or fulure d evelopme nt Ongoing HPP, RFANS, RNS, GFG New or fulure d eveloprne nt New or future d evelopme nt HPP, NSGC, BNS, CKNS EAC, HPP. SB FACILITY DEVELOPMENT GRANT AND B-FIT The Nova Scotia Ministry of Health Promotion and Protection provides financial assistance to municipalities, school boards, health authorities and community organizations to assist in planning and implementing physical activity, sport and recreation opportunities. Announced in 2007, the grant program invests an annual $3 Mil province-wide. The Facility Development Grant and the Building Facility Infrastructure Together (B-Fit) Program include funding for the capital costs associated with trails. The first one is intended for projects in the $20, 000 to $450,000 range, and the later for projects greater than $450,000. The program policy requires that Provincial government funding for a project cannot exceed 500/0 cent of the project's total cost. WALKING & WHEELING QUARTERLY Walking & Wheeling Quarterly is an electronic newsletter of Pathways for People, a project of the Ecology Action Centre www.ecoloqvaction.ca in partnership with Nova Scotia Health Promotion and part of the Active Kids, Healthy Kids Physical Activity Strategy. It is meant to share information on active transportation (walking, biking, in-line skating, skateboarding, scootering, etc.) initiatives in Nova Scotia and beyond. Wa{kin~~:lL" -- . "I' . ".~ VYf,eellnn Quattcr{ijY TRAILS NOVA SCOTIA L---' F'lljl D ~~~ The Government of Nova Scotia maintains Trails Nova Scotia website (http://www.trails.qov.ns.ca/) where trail users can find maps and information on six different types of trail routes in areas throughout the province. Detailed information is available on: shared-use trails, snowmobile trails, canoe waterways, sea kayak routes, coastal water trails, and the Trans Canada Trail in Nova Scotia. August 2008 Page A.6 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN The Nova Scotia Trails Act (RSNS, c. 476, 1989, amended 1993) facilitates land acquisition and reduces landowner liability associated with trails. The purpose of the Trails Act is to . Establish and operate trails on Crown lands and over watercourses for recreational use and enjoyment; . Establish trails on privately owned lands, with the prior consent of the owners or occupiers; . Reduce the liability of the owner or the occupier of privately owned lands where consent is given to designate a trail; . Establish and operate trails, either by the Department or through agreement with persons, including municipalities, clubs, organizations and other such bodies; and . Provide for effective management of trails and the regulation of trail user activities to ensure quality user experiences Community Based Initiatives GREENLINKlROTARY PARK The GreenLink Park Society is a Sydney, Nova Scotia community group proposing a major natural recreation development for the heart of Sydney, focused on Rotary Park. The GreenLink Park concept includes a trail network, neighbourhood parks, interpretive pavilions, an amphitheater, and a wheelchair accessible promenade on a sixty-six acre parcel of land between downtown Sydney and the Cape Breton Regional Hospital. The GreenLink Park Society has been working since April 1997 to develop a proposal for the project. EDM consulting of Halifax completed a conceptual design for the project in December 1998 and the GreenLink Park Society has been introducing the proposal to the community since then. As part of this AT study, a walk-about was held with members of the GreenLink Society. Notes from this walkabout are included in the Phase 1 report. WHITNEY PIER HERITAGE TRAIL The Whitney Pier Historical Society is promoting the Whitney Pier Community Heritage Trail in co-operation with CBRM, NS Dept. of Natural Resources, Nova Scotia Lands, and Nova Scotia Power to increase recreation opportunities for the Whitney Pier community and other CBRM residents, and to commemorate the historic association between Whitney Pier and the former Sydney Steel Plant. The Vision for the Trail is to "provide active and passive recreation opportunities for community residents and visitors, while commemorating the past and fostering community pride". August 2008 Page A. 7 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN Planning for this trail has advanced to the point were draft trail maps have been completed and discussions on property requirements/ownership have commenced. However, funding remains an outstanding issue. Source: Whitney Pier Community Heritage Trail, Background Report and Concept Plan, EDM Environmental Design and Management Limited, December 2004 TAR PONDS REHABILITATION Planning for the clean up and rehabilitation of the lands around the Tar Ponds and Coke ovens has been underway for some time. A multi-million dollar plan to clean up the two sites is awaiting final approvals from the federal and provincial governments following an exhaustive public environmental review. One of the concepts discussed as part of the rehabilitation is to establish a series of active transportation facilities on the reclaimed lands. CBRM is on record as stating that "the future use plan should reflect the public's desire for active living spaces on the two sites, including the planting of native trees and shrubs. The agency is urged to set aside money to share the future cost of maintaining walking trails and open spaces". CBRM has also called for the development of a corridor linking the Port of Sydney and the airport, known as the port-to-port plan. This concept is outlined in the recently completed (Draft) Port to Port Corridor Study. In addition, a review panel report was recently submitted to the Sydney Tar Ponds Agency supporting an active transportation link between Whitney pier and downtown Sydney. Associations and Working Groups ECOLOGY ACTION CENTRE The Ecology Action Centre has acted as a voice for I~ I · I Nova Scotia's environment for over 35 years to build a'\l7eCO ogy action centre. healthier, more sustainable Nova Scotia. They have over 1400 members, 250 volunteers and staff, and seven active teams and committees. The Ecology Action Centre works closely with social and natural scientists and makes strong use of science in communicating its message to the public. Their current areas of focus include Built Environment, Marine Issues, Coastal Issues, Wilderness, Food, Transportation and Energy Issues. TRANSPORTATION ISSUES COMMITTEE The Transportation Issues Committee (TIC) aims to improve sustainable transportation options in Nova Scotia. Currently they have four major projects: . TRAX aims to make sustainable transportation options more viable in Nova Scotia. TRAX projects include transit pass programs (e.g. U-PASS, E- PASS), active transportation projects (e.g. ADAPT; Halifax Open Streets) and education initiatives (e.g. Commuter Challenge, Bike Week). ......~('!.-~~ t~a.~ '... ... -,'lC4 ,i'~ . Steer Clean provides incentives to Nova Scotians to recycle their old, polluting cars and replace them with cleaner alternatives . Active & Safe Routes to School encourages the use of active transportation to and from school, such as walking and cycling. August 2008 Page A.8 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN . Bike Again! is a community project that transforms used bike parts into new bikes, making bicycling more affordable and accessible to everyone. BICYCLE NOVA SCOTIA Bicycle Nova Scotia (BNS) is the coordinating body cycling in Nova Scotia. It is a volunteer-run not- for-profit organization. One of their initiatives includes the preparation of an Active Transportation (AT) document for bikeways throughout all of Nova Scotia. ACTRAC Active Transportation Coalition (AcTraC) is a coalition of community based organizations working together to promote the benefits of active transportation. An example of AcTraC's initiatives includes the hosting the recent series of presentations by Gil Penalosa from Walk & Bike For Life. VELO CAPE BRETON Velo Cape Breton (VCB) is a non-profit, membership-based, volunteer-run organization whose mission is to promote all aspects of bicycling in Cape Breton. VCB is working to promote the bicycle both as a mode of transportation and recreation. VCB serves all of Cape Breton Island and offers a wide variety of rides for people of all ages and abilities, including road cycling instruction sessions and rides for novice cyclists, instruction on touring by bicycle, week-end rides, short casual evening rides, day and multi-day tours. Velo Cape Breton funds are mainly derived from membership dues. Members of Velo Cape Breton have been very active throughout this study and have helped to generate interest within the community on the importance of the study and follow-on implementation. CAPE BRETON ISLAND PATHWAYS ASSOCIATION The Cape Breton Island Pathways Association is a non-profit association dedicated to assisting the development of trails and waterways on Cape Breton Island. The goal is to promote trails and waterways so as to have a significant year-round economic impact on Cape Breton Island. Pathways objectives are to foster and support communication and cooperation between the island's diverse communities, to stimulate Island-wide economic development by assisting communities in developing sustainable infrastructure, and to promote quality of life enhancements and active living Island-wide. http://www.pathwavscb.ca/about.htm August 2008 Page A.9 August 2008 APPENDIX B REVIEW OF PRACTICES FROM OTHER JURISDICTIONS ~ 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN LEARNING FROM OTHERS The following represent leading examples from other municipalities in policies, practices and programs that support and encourage more cycling. It is not intended to be a comprehensive list, but provide ideas on a range of resources and possibilities both locally and internationally. Case studies and best practices are intended to focus on issues that are specific to CBRM. Bicycle-Friendly and Walkable Communities DAVIS CALIFORNIA The City of Davis, California, is a wonderful example of a town of approximately 65,000 inhabitants that put bike planning at the top of its agenda and remained committed for four decades. The result has been a remarkable level of bike facilities per capita, which include on-street bike lanes, trails, interstate under- and over-passes, bike-specific traffic signals, and bike parking - the town requires the latter for any new development. The local college, UC Davis, played an instrumental role in getting the plan off the ground during the 1960s. The campus is now well connected to the town via bike priority streets containing diverters made from rows of bollards. With so many excellent facilities in place, it is not surprising that roughly 160/0 of work commutes are made by bike34, which even rivals many European cities, and in 2005 the League of American Bicyclists designated it the only platinum city in the U.S. Although the town's geography is well suited for cycling, the City has also ensured cycling is viable option by adopting policies that promote infill development, even distribution of multi-family housing, and conveniently locating services to moderate trip lengths and promote walking, transit, and cycling. Such progressive planning extends not only to cyclists, but also pedestrians, which includes many intensely landscaped street crossings, with surface treatments designed to alert drivers and calm traffic. Density of Utilitarian Bike Facilities Davis km of Utilitarian Bike Facilities per Square km Hamilton Toronto Vancouver Montreal Chicago New York City Portland Copenhagen Amersterdam Berlin Sources: City of Chicago DOT website (2005); New York City Department of City Planning, Transportation Division (2007) New York City Bicycle Lane and Trail Inventory; City of Vancouver website (2007); Pucher, J. & Buehler, R. (2008) Making Cycling Irresistible: Lessons from the Netherlands, Denmark, and Germany; Clean Air Partnership (Nov, 2007 - Draft) The State of Active Transportation: Greater Toronto, Hamilton and Beyond, Prepared for Metrolinx; City of Amsterdam; 34 U.S. Census Data (2000), retrieved online January 24, 2008 [http://factfi nd er. cens us. gov /servl et/Down loa d DatasetServlet? _Ia ng =en] August 2008 Page B. 1 181 GROUP FINAL REPORT SHARED SPACE Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN The concept of shared street space, commonly known as a Woonerf (or "Home Zone" in England), grew from attempts to quantify a street's environmental capacity based on measures of noise, pollution, social activity, pedestrianization and visual aesthetics. This led to the notion that certain environmental capacities could safely permit streets with mixed uses. Such streets are typically narrow; lack curbs and clear sightlines; and have obvious gateways, very low speed limits, street trees, community gardens, and varied surface treatments. Until recently this approach was not taken seriously in North America, despite having been practised for decades in countries like the Netherlands, Germany, England, Japan, Israel, and Spain. More recently, a similar design philosophy (sometimes referred to as "Naked Streets") has been applied to higher capacity streets in the Netherlands by removing all traffic signs and roadway markings. The idea is based on the premise that behaviour can be regulated through street design cues rather than relying on typical signage, pavement markings and certain types of traffic calming that have been traditionally used to isolate vehicles from pedestrians and manage their interaction. Without signs, those using the street purportedly pay more attention to their surroundings and look to make eye contact more often. Almost counter intuitively, this ambiguity has resulted in fewer severe accidents, thus challenging our traditional approaches to safe design while at the same time emphasizing the role of streets as social places and not solely conduits for motorized traffic. While implementing shared space concepts in CBRM to the degree that has been done in Europe may be premature, elements of the concept are relevant. For example, temporary street closures on Sundays or for specific events can help to raise awareness of the need for more balanced transportation systems. ROAD DIET RETROFITTING In Toronto, St. George Street is the main arterial road which runs through the downtown University of Toronto campus. The campus portion of the road was placed on a permanent "road diet" in 1997 resulting is some significant benefits to the street's safety and liveability. At a cost of $6 million, the street was reduced from four lanes to two, the sidewalks were widened and bicycle lanes, architectural features, a tree canopy, and informal pedestrian crossings were added. Since implementation, the street has developed into a vibrant and active backbone for the campus. Traffic speeds and collision rates have decreased, bicycle volumes have increased while car volumes stayed the same, and university employees have noted a significant improvement in the area's attractiveness. NEW URBANISM New Urbanism is not explicitly about street design, but rather an interconnected set of community principles that emphasize pedestrian priority, for which street design is a crucial component. It is arguably now the most widely recognized alternative to conventional suburban development in North America. New Urbanist design ideas date back to the late 1980's but it was not until 1993, when the non-profit Congress for the New Urbanism (CNU) was founded, that New Urbanism formally took shape in the U.S. There are two main types of New Urbanist developments: Traditional Neighbourhood Development, which finds its August 2008 Page B.2 181 GROUP FINAL REPORT August 2008 Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN inspiration in pre-industrial neighbourhood form, and Pedestrian-Oriented Development (sometimes also called Transit-Oriented Development). Examples of each are sprouting across North America and offering homeowners the choice to move into new suburban and infill developments that are also relatively pedestrian friendly. Although the pace of development in CBRM has been fairly slow, this could change quite quickly if the tar ponds rehabilitation fuels new employment and economic activity. It is therefore important to be prepared to respond to designs for new communities when they come in, and to ensure that they consider features that facilitate walking and cycling, and more generally new urbanism principles. SCHOOL COMMUTE CORRIDORS .~ The Greenwood infill new urbanist development in Toronto, for which construction started in 2001. In 2003, the City of Palo Alto, CA, adopted a School Commute Corridors Network which grants special consideration for the principal school commute routes as regards infrastructure improvements and proposals for street changes through the development process. The scope of such designations is broad and includes crosswalks, bikeways, traffic calming measures, pavement markings, traffic signals, and overcrossings to name a few. Pedestrian Facilities PEDESTRIAN CHARTERS The City of Toronto has created its own Pedestrian Charter which articulates the principles intended to inform policy that might affect pedestrians: accessibility, equity, health and well being, environmental sustainability, personal and community safety, and community cohesion and vitality. Although other charters exist in Europe and Australia, Toronto's was the first to be passed by a municipal government and also served as a model for the charters developed in Kitchener, the Region of Waterloo, and Cambridge. The Vision outlined for this active transportation plan reflects some of the principles of these charters. CROSSING THE STREET When the New York City Department of Transportation replaced their double line crosswalks with "ladder" markings, vehicle/pedestrian collisions dropped by a shocking 420/0. It is critical that motorists be effectively encouraged to drive cautiously in areas with a lot of pedestrian traffic. Countless municipalities have taken steps to reclaim street space for pedestrian use at key locations along roadways, particularly at busy crossing points to minimize crossing distances, calm vehicle traffic, and offer space for pedestrians to wait for traffic to clear. Pedestrian refuge islands are one such example, where a median is installed to allow Page B.3 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN pedestrians to comfortably cross one direction of traffic at a time. The islands provide space in the centre of the roadway where pedestrians can wait for a gap in traffic coming from the other direction. The islands are particularly suited for wide roadways with four or more traffic lanes since it can be particularly challenging to find a gap in so many lanes of traffic travelling in both directions, never mind the safety risks involved. Many municipalities now have prepared design guidelines for pedestrian refuge islands. Further improvements at formal pedestrian crossings can also be made by raising the crosswalk, applying different road surface treatments to give drivers tactile feedback, or narrowing the roadway. Examples of some of these types of improvements can be seen on the Esplanade in Sydney. Bicycle Facilities CORRIDORS AND BOULEVARDS Vancouver has looked beyond bike lanes to build its cycling network. To avoid conflicts on busy streets, Vancouver has dedicated streets adjacent to major arterials as bike priority corridors. Vehicular through traffic is discouraged with the heavy use of traffic calming and traffic diverters that do not affect cyclists. Where these corridors intersect major streets, bike priority traffic signals and pushbuttons have been installed. A similar approach to shared-use facilities is also practiced in Berlin, where driving is limited to 30 km/h and motorists must not interfere with or pressure cyclists. In Vancouver, the introduction of these traffic calming features has also worked in conjunction with a Green Streets program by creating countless spaces for small volunteer gardening projects. The successful Vancouver system is truly a network that continues to expand its extensive use of Sky train corridors, bikeways, "greenways" and, bike lanes, while simultaneously enhancing the city's public space for pedestrians. Traffic diverter along Vancouver bikeway allows access to cyclists, but prevents vehicular through traffic. BIKE LANE DESIGN -1IIlI=- c:::-=- ':.- =------_ .u ~ . ~ -----: - ~ ~- Bicycle pushbutton allows cyclists to actuate traffic signal without dismounting from their bikes. August 2008 The definition of what constitutes a bikeway can vary considerably. Shared on-street facilities, for example, could mean anything from simple lane markings to traffic-calmed bike corridors. Ultimately, design can make or break the usefulness of a bikeway. Over the past decade, expansion of the bike network in the Netherlands has actually slowed as the cities' focus shifts to improving the design of facilities. Bike lanes, for example, are often wide enough for two cyclists to ride side-by-side. Facilities in Berlin are almost all segregated from traffic. As a result, intersection designs have improved dramatically. Page 8.4 181 GROUP FINAL REPORT August 2008 INTEGRATION WITH PUBLIC TRANSIT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN The issue of pedestrian access to public transit often slips through institutional cracks, despite most transit users' accessing the system by foot. Furthermore, since cycling is ideal for two to five kilometre trips, it offers enormous potential to expand the catchment area of higher-level transit services and dramatically improve their viability in lower density neighbourhoods. Yet we see limited investment in such facilities at transit stations. Bikes on public transit and bike-racks on buses are not usually options. Many European cities are aggressively moving to provide bike parking at stations, such as Berlin's 24,600 bike-n-ride parking spots or the 3,300 spaces at the central station in the small city of Muenster. For those of us who might need a bike at both ends of the trip, Velib is a stunning initiative launched this past summer in Paris, which saw 10,600 self-serve bike rental stalls distributed across 1 ,500 strategic public transit locations. This program was financed by the JCDecaux advertising corporation in return for Paris signing over the income from a portion of on-street advertising. Closer to home, Vancouver's regional transportation authority, Translink, has just announced it will develop a business strategy for the installation of a similar automated public bicycle system across the region. INTERSECTION DESIGN Nowhere are the conflicts between cyclists, pedestrians, and motorized traffic more apparent than at intersections. Even with spectacular mid-block facilities, such facilities are useless if they fail at intersections. The concept of bike boxes has been around for decades, but has appeared in North America only recently (see image). Essentially the vehicle stop line is moved away from intersections to leave room for cyclists to queue on a red light. By moving cyclists in front of vehicles, cyclists can make left turns without interference and their visibility to motorists is dramatically improved. Some also argue that they improve pedestrian safety since motorists are not able to turn right on a red light. The bright colours usually seen in bike boxes are also sometimes used to highlight bike lanes and encourage caution as people pass through intersections. When segregated bike lanes are placed on the right side of parked vehicles or along half of the sidewalk, it can be very difficult for turning motorists to see O.~ .. ._l,.::....-=-~~ Separate traffic signals for bicycles. Page B.5 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN oncoming cyclists at intersections. As a result, planners in several European cities will often use special traffic signals or realign crossing bike lanes further from the intersection. The latter is a minor inconvenience for cyclists, but helps improve their chances of being seen by right-turning vehicles. To improve pedestrian crossings, designers are trying different surface treatments to expand the sensory cues, signalling motorists to use caution. Unconventional street geometry is also becoming more and more common as designers better understand how to influence behaviour without relying on street signs. Simple adjustments include curb extensions to minimize crossing distances and bollards or traffic islands to sharpen turning radii and slow down turning vehicles. Some contemporary approaches to street design in Europe are notably more radical. Street retrofitted with surface treatment and speed hump to enhance safety of pedestrian crossing. BIKE PARKING STANDARDS . .jl; ~. Bike boxes move cyclists in front of vehicles at intersections, making turning movements easier for cyclists and improving their visibility. Both Toronto and Halifax have been leaders in developing bicycle parking standards. Toronto was one of the first municipalities to develop such standards. In 1993, the former City of Toronto amended its zoning by-law to require such parking for all new residential and commercial buildings with over 2,500m2 of floorspace, and showers and change rooms are also required for these commercial buildings. For example, a new residential building is required to provide 0.75 bike parking spaces per unit, while a new commercial building needs to provide one space per 1,250m2. Bike parking standards adopted by HRM in 2006 go even further in terms of supply ratios. In the meantime, the City of Toronto has been feverishly installing hundreds of post and ring bicycle parking racks on City sidewalks and boulevards every year. The stands are provided free of charge in response to requests received from businesses, residents or cyclists. The program is intended to provide public bicycle parking facilities at destinations that are frequented by cyclists and priority is given to locations where there are few suitable alternatives (parking meters, sign posts, etc.). The City of Vancouver has both bicycle parking and shower/change room by-laws that apply to a wide range of land uses and two classes of parking: Class A - bicycle room, compound or lockers, and Class B - bicycle racks. The change room and shower by-law specifies the number of water closets, wash basins and showers required at a new building, based on the number of Class A bicycle parking spaces required. The City also has a design supplement to the by-law to further guide the development of well-designed and located bicycle parking. The City of Portland, OR, also provides Bicycle Parking Facilities Guidelines that explain what makes a good rack and a good location. August 2008 Page B.6 181 GROUP FINAL REPORT Multi-use Trail Facilities RAIL CORRIDORS IN VICTORIA, BC Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN It was as early as 1987 when British Columbia's Capital Regional District converted 55km of a CN Railway right-of-way into a successful bike corridor, the Galloping Goose Trail, which serves both recreational cyclists and commuters, and is now designated part of the Trans Canada Trail (see below). As the trail is a former railway bed, it follows a gentle grade and effortlessly weaves through urban areas in Greater Victoria. Following the success of the Galloping Goose, the Lochside Regional Trail System was inaugurated in 2000, which also follows an abandoned rail corridor and connects Victoria to the busy Swartz Bay ferry terminal, as well as several small communities along the way. In addition, work is underway to install a 17km trail, the E&N Rail Trail, along an active rail corridor. Both the E&N and Lochside trails connect with the Galloping Goose in Victoria's urban setting and reach out to more scenic and recreational destinations. TRANS CANADA TRAIL The Trans Canada Trail is a significant undertaking. Financial support comes from numerous corporate sponsors as well as many individual donations (the latter comprising 830/0 of the organization's funds). To date the foundation has raised well over $25 million, facilitated by strong government and corporate connections as well as the organization's non-profit, registered charity status. The primary focus of TCT is to build a shared-use recreational trail, including education signs, which will pass through every province in Canada by 2010 (and TCT even claims it will eventually include the territories). For the most part, this involves coordinating links between existing trails. Presently two thirds of the trail is usable. In 2010, Canadian National donated 560km of dormant rail lines in Ontario, Manitoba, Saskatchewan and Alberta which had an appraised value of $10 million. Pacific Railway also donated $37 million worth of dormant rail lines in 1998. Programs to Encourage Walking and Cycling A WALKING SCHOOL BUS IN BRAMPTON A walking school bus is a community-based approach to promote walking to school. Children walk in a group, under adult supervision, and pick up other students on the way to school. In Brampton, the Morton Way Public School tried such a program for a week in 2003, along with an "extra recess incentive" to encourage participation, and saw remarkable success. The positive response encouraged the school to permanently establish the program one day every week and during Environment Week. The school estimated that an amazing 90 per cent of the school children in grades 1-5 began walking to school regularly once the walking school bus program was introduced, compared to 400/0 previously. In recognition of their success, the Morton Way Public School won the International Walk 21 Award in 2006. August 2008 Page B.7 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN ACTIVE & SAFE ROUTES TO SCHOOL (ASRTS) By working with school-based groups such as parent-teacher associations, school administration, school advisory councils, and student groups, Active & Safe Routes to School (ASRTS) in Nova Scotia encourages children, youth, and their families to use active transportation. The group supports programs such as walking/cycling school buses, Walking Tour of Canada and Walk & Wheel Weekdays. ASRTS also does promotion work outside of schools with youth and community organizations as well as a wide range of stakeholders from law enforcement to transportation and planning sectors. AWARDS The City of Toronto has created the Bicycle Friendly Business Awards, which are presented every year to local businesses and organizations who demonstrate a commitment to encouraging their clients and employees to commute by bike. Award categories include: Best Bike Parking, Bicycle-Friendliest Suburban Business, Bicycle Commute, Best Small Business (up to 99 employees), Best Large Business (100 employees and over), Best Skills Development, and Best Overall. Velo Cape Breton also has an awards program called "Bicycle Friendly Network Program." Participation is open to every businesses, involved or not in the tourism industry. BIKE SUNDAYS Bogota, Colombia has recently been attracting worldwide attention for its temporary Ciclovias, a Spanish term meaning bike path, installed every Sunday and holiday from 7am to 2pm. The event entails banning automobiles from 120km of streets in the city's core to open them for any non- motorized use. It purportedly attracts around 2 million people (nearly a third of the population). Although Bogota has been running the event since 1976, it expanded considerably with the introduction of a new Bus Rapid Transit, which stimulated significant efforts to create and connect many public spaces throughout the city. Other Colombian cities, such as Cali and Medellin have also adopted similar regular street closure events. According to the government, the purpose of the event is to promote physical activity and health, but as any resident will tell you, there are also significant social, cultural and environmental benefits to expanding the City's public space network. In a similar spirit, the National Capital Commission organizes Sunday Bikedays in Ottawa and Hull where more than 50 km of parkways are closed to motorized traffic from 9 AM to 1 PM every Sunday morning from Victoria Day weekend to Labour Day. CAN-BIKE CAN-BIKE is a safe cycling skills program administered by the Canada Cycling Association. Over the past decade it has become the de-facto standard for cycling education certification across Canada with programs in most major Canadian cities. The CAN-BIKE courses teach defensive riding, traffic analysis, collision avoidance techniques, and basic bike inspection. They also provide a special course "Bicycling Freedom for Women", giving special attention to security at night and riding with children. All Toronto police officers on bikes and the city's Cycling Ambassadors must be CAN-BIKE certified. CAN-BIKE courses are currently offered by Halifax Recreation in their spring and summer program. August 2008 Page B.8 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN CYCLING AMBASSADORS Toronto's Cycling Ambassadors are essentially the city's small team of cycling experts who run programs and campaigns from May to August to encourage safe riding for healthy and sustainable transportation ends. Among other things, they are heavily involved in the Bicycle Friendly Business Awards (mentioned above), Bike Week, the Bicycle User Group Network, and CAN-BIKE. They deliver information at community events and through safety seminars. Beyond their education and promotion roles, the Ambassadors also do a small amount of simple data collection (such as surveys and bicycle counts) to help with an ongoing evaluation of the Toronto Bike Plan. POLICE ON BIKES Prior to amalgamation, the Sydney Mines Police Force had a "police on bikes" unit that was felt to be very effective in carrying out community policing. The current CBRM Police Service includes approximately 60 new and young officers, and, given the low cost of purchasing and maintaining bicycles compared to other police vehicles, may consider this approach viable again. August 2008 Page B.9 181 GROUP FINAL REPORT Cape Breton Regional Municipality ACTIVE TRANSPORTATION PLAN . Traffic signal phasing . Pedestrian countdown signals . Pedestrian refuge islands 4.1.2 PEDESTRIAN SAFETY AND SIDEWALK LOCATIONS Pedestrian safety can be both a real and a perceived factor that influences where and how often people choose to walk. Sometimes walking conditions or situations are unsafe without the pedestrian understanding the risk and other times a condition is perceived risky when in fact it may be uncomfortable or inconvenient rather than unsafe. Sidewalks are walkways that are parallel to a street or highway. They have a hard surface, generally concrete. Properly planned sidewalks are essential in providing for the mobility, safety and accessibility of pedestrians from children to the older adult. Sidewalks can be retrofit into existing streets, but a more expedient and cost-effective procedure is to plan for the pedestrian as land is planned for development or re-development and roadways are designed for construction or reconstruction. 4.1.3 SAFE PLACES TO WALK Streets without safe places to walk put people at risk. Studies in the US have shown that residential areas with no sidewalks had 230/0 of the pedestrian crashes but only 30/0 of the pedestrian traffic C5). In addition, local streets without sidewalks are more hazardous. Streets with no sidewalks had 2.6 times more pedestrian crashes, and sidewalk one side only had 1.2 times more pedestrian crashes than streets with sidewalks on both sides C6). Pedestrian safety is affected by the traffic. As indicated in Exhibit 4.3, when vehicle travel speed increases the risk of injury of death if a collision occurs with a pedestrian also increases. In addition, the awareness, visibility and behaviour of both drivers of motor vehicles and pedestrians affect pedestrian safety, and this is further complicated by higher vehicle travel speeds regardless of whether or not the travel speed exceeds the posted speed. Exhibit 4.3: Pedestrian's chances of death if hit by a motor vehicle based on the speed of the vehicle 25 Knoblauch, R.L., Tustin, B.H., Smith, S.A., and Pietrucha, M.T., "investigations of Exposure Based on Pedestrian Areas: Crosswalks, Sidewalks, Local Streets AND Major Arterials", Report No. FHWA/RD-88/038, Federal Highway Administration, September 1988. 26 Ibid. August 2008 Page 36