Transportation, Mobility and Access

Transportation, Mobility and Access In The City of North Vancouver A Discussion Paper Prepared to Inform the Direction of a New Official Community Plan 2021 & Beyond Dragana Mitic Assistant City Engineer Transportation Adrienne Mairs Transportation Consultant December 2010

Table of Contents 1.0 SUMMARY... 1 2.0 BACKGROUND... 2 3.0 SUSTAINABLE TRANSPORTATION IN THE CURRENT OCP... 2 4.0 LONG-TERM TRANSPORTATION PLAN... 3 5.0 CURRENT TRANSPORTATION TRENDS AND CHALLENGES... 4 5.1 General Trends in the City... 4 5.2 Vehicle Tailpipe Emissions... 5 5.3 Walking and Cycling... 7 5.4 Transit... 7 5.5 Transportation Demand Management... 8 5.6 Goods and Services Movement... 9 5.7 Regional Collaboration... 9 6.0 TRANSPORTATION IN THE OCP UPDATE... 10 7.0 AVAILABILITY... 12

1.0 SUMMARY With increasing awareness and concern of the global impact of greenhouse gas emissions, more and more people are making lifestyle changes that affect their daily routine. These changes include the way they move within the community and region, whether for work, school, shopping or recreation. To help facilitate the necessary change, the entire community has to be served by a sustainable transportation system that accommodates convenient local and regional trips for all. Despite the widespread awareness of reducing greenhouse gas emissions, the automobile continues to be the dominant travel mode of choice in the region and in the City, contradicting sustainable transportation visions. Currently, 70% of daily trips made by City residents remain on the North Shore, and 80% of these are made by car. The proportion of car trips drops to 50% in the City s dense core. While the City has achieved many successes in creating vibrant and sustainable neighbourhoods, much work has yet to be done to offer convenient and widespread sustainable transportation choices (such as transit, walking, cycling and carpooling) for current and future citizens. Fundamental shifts in transportation and land use (such as increased density and mixed land use) planning are necessary to translate the Transportation Plan into a measurable change in transportation patterns. This discussion paper was prepared to introduce the Transportation, Mobility and Access subject in the context of the OCP 2021 & Beyond process. This paper examines how key ideas in existing City documents and policies can be brought together to create long-term transportation policies and practice. Most critically, this paper aims to inspire discussion on the subject of how to best build adaptable, resilient and sustainable transportation infrastructure in the City. In the course of examining the current transportation trends and challenges faced by the City, several dominant themes have emerged for discussion. While these themes establish a starting point for the OCP 2021 & Beyond discussion of transportation, mobility and access, it is necessary to pose specific questions to the community to stimulate a dialogue. Questions to inspire discussion may include: What actions should the City take to encourage changes in human behaviour and assist residents adapt to more sustainable ways to move within the community (such as walking, cycling or taking fewer trips)? What are the biggest opportunities and obstacles facing the City, when it comes to creating a sustainable, resilient transportation system that is less dependent on the single occupant vehicle? 1 P a g e

2.0 BACKGROUND Since the 2002 Official Community Plan (OCP), various policies and plans created by the City have emphasized the need to form a sustainable transportation system. These range from the Long-term Transportation Plan (2008), 100 Year Sustainability Vision (2009), to the Community Energy and Emissions Plan - CEEP (2010). Through implementation of these plans, and by developing accompanying programs, the City aims to offer local residents and businesses opportunities to change behaviour and patterns in order to create increasingly responsible sustainable practices. At the same time, the City also recognizes the significant challenge of providing convenient transportation choices that provide viable alternatives to the single occupant vehicle. Based on current trends in greenhouse gas (GHG) emissions, it is evident that in order to provide these choices and achieve essential changes in travel behaviour the City must lead the movement away from cardominated travel patterns. The provincial and federal governments are also aggressively pushing forward sustainable transportation strategies, in order to deal with the global effects of GHG emissions. Nearly half of all such emissions in the City of North Vancouver are attributed to the transportation sector, which includes vehicle trips related to everything from the commute to work to the movement of goods to the trip to the supermarket. It is clear that achieving emission reduction targets will require a fundamental shift in transportation planning and community lifestyle at the local level. 3.0 SUSTAINABLE TRANSPORTATION IN THE CURRENT OCP The 2002 OCP dedicates a section to Transportation, Mobility and Access, with subsections discussing each mode of transportation. The transportation goals outlined in the 2002 OCP established the basis for developing a sustainable long-term transportation plan for the City. Within the 2002 OCP, a clear preference was given to transportation alternatives that provide an alternative to the single occupant vehicle, while ensuring mobility and access for all users to services within the community. Since the 2002 OCP was prepared there has been an increasing movement, at all levels of government, to make substantial progress in sustainable transportation strategies. This has resulted in a broader toolbox of sustainable transportation plans, projects and programs. Most significantly, in 2010 the provincial government required municipalities to incorporate targets, policies and actions for GHG reduction into their Official Community Plans. In response to this requirement, the City amended its OCP Bylaw to define four new transportation policies. 2 P a g e

A. To integrate land use and transportation planning to minimize the need for private vehicle use and maximize pedestrian, bicycle and transit travel. B. To decrease greenhouse gas emissions by providing alternatives to the automobile including, but not limited to, the provision of sidewalks, multi-use pathways and cycling routes, transit rider enhancement and giving vehicle priority to transit. C. To work toward a modal split with a higher concentration of transit use, walking, cycling and carpooling. D. To encourage a reduction in the number of trips and vehicle kilometres travelled per capita in line with regional and provincial objectives through the policies and approaches contained elsewhere in this plan and in cooperation with Metro Vancouver, the Province and TransLink. As required by the bylaw amendment, the City is also committed to undertaking specific actions with regards to transportation priorities. These include: implementation of the Long-term Transportation Plan to achieve vehicle trip reduction targets for 2028 (specifically, reducing the vehicle trip share by 10% per capita, and increasing the mode share for non-automobile modes to 30%); and continued inter-agency work on improved transit service and alternative infrastructure funding. 4.0 LONG-TERM TRANSPORTATION PLAN The 2008 Transportation Plan (http://www.cnv.org/transportationplan) was prepared by the City to help achieve many of the long-term goals and objectives outlined in the current (2002) OCP, thus forwarding the OCP s overall Community Vision. The Transportation Plan will be the basis for the discussion of sustainable transportation in the context of the OCP 2021 & Beyond process. The Transportation Plan goals and objectives were developed to reflect the Community Vision and support the OCP policy paths. As such, the Transportation Plan: Contributes toward the overall Vision of becoming a vibrant, diverse and highly liveable community, where quality of life and community well-being are vital. (Liveability Liveability) Supports the safe, efficient, and accessible movement of people, goods and services throughout the City and beyond our boundaries. (Mobility Mobility) Supports the development and integration of all modes of travel in order to offer more choice to the residents, workforce, and visitors of the City. (Integration Integration) Recognizes the financial constraints of the City and promotes the development of transportation infrastructure and services that will best support the goals of the Plan. (Affordability Affordability) 3 P a g e

Supports alternative means of transportation, namely walking, cycling and transit and promotes strategies to manage travel demand in an attempt to reduce local greenhouse gas emissions. (Environment Environment) The dominant focus of the Transportation Plan is to define a clear framework in which to work towards being a more sustainable community. Through implementation of the measures included in the Long-term component of the Transportation Plan, the City will increasingly be able to offer residents attractive transportation choices that can help to reduce single-occupant vehicle use and support walking, cycling, and transit. 5.0 CURRENT TRANSPORTATION TRENDS AND CHALLENGES In the context of preparing to update the OCP, it is necessary to discuss the current transportation trends and challenges facing the City. While the implementation of the 2008 Long-term Transportation Plan presents significant opportunities, it also highlights considerable challenges. Approximately 80% of all weekday trips in the City are made by car. Driving is (and will continue to be) the most convenient and flexible mode of travel for most residents of the City (and the broader region). Fundamental shifts in transportation and land use (such as increased density and mixed land use) planning are necessary to translate the Transportation Plan into a measurable change in transportation patterns. 5.1 General Trends in the City With regards to current transportation activity and greenhouse gas emissions in the City, some of the key facts are presented below. The transportation sector currently accounts for the largest proportion of greenhouse gas (GHG) emissions in the City, at 49 percent. 70 percent of daily trips made by City residents remain on the North Shore, and 80 percent of these trips are made by car. These values reflect opportunities to develop better transit, cycling and walking networks for short-distance North Shore trips. Within the Lonsdale Town Centre only 50 percent of trips are made by car a factor that illustrates how promoting denser development (with accompanying road improvements for non-motorized modes) will reduce car use. Continuing to integrate transportation, land use and development planning will create highly livable and safe neighbourhoods. 4 P a g e

Traffic volume has been increasing annually by 1.5 percent; however a lower rate of 0.5 percent is projected in future years due to denser redevelopment and improved access to transit. While 23 percent of daily trips in the City are related to school or work, the other 77 percent constitute trips that the majority of which are somewhat discretionary. This indicates that opportunities may exist to reduce car trips by targeting those trips that do not require rigid adherence to arrival and departure times, for example trips related to shopping and recreation. The City s demographic profile identifies an aging population trend. In coming years, there will be a gradual increase in the number of residents who rely on mobility aids such as scooters to get around the City. The transportation infrastructure must be able to accommodate these needs, particularly in the pedestrian and transit realms. The City s Community Energy and Emissions Plan (CEEP), 2010, defines aggressive targets that must be achieved, with regards to reducing GHG emissions from buildings, transportation and waste. The 2020 target requires a GHG emissions reduction of 15% below 2007 levels, while the 2050 target involves a reduction in GHG emissions of 50% below 2007 levels. In specific terms, the transportation actions required to achieve these targets involve reducing the vehicle trip share by 10% per capita and increasing the mode share for non-automobile modes to 30%. A longer-term concept, as envisioned in the 100 year Sustainability Vision document (2009), is to aim toward zero emissions by 2107, the City s 200 th birthday. 5.2 Vehicle Tailpipe Emissions The Community Energy and Emissions Plan indicates that the City will experience its most significant GHG reductions through improving tailpipe emission standards - an undertaking that is within the realm of senior government policies and actions. It must, however, be emphasized that local policies and actions (such as sustainable transportation initiatives) will also have measurable and meaningful contributions to emission reductions. In the future, technological improvements will undoubtedly make low emission vehicles (LEVs) increasingly popular. There will be a corresponding need to develop the necessary energy sources to accommodate some of these LEVs (for example, an electric energy grid consisting of charge stations). The City will therefore experience a shift in the type of energy supplied at service stations, with possible new infrastructure requirements to be developed. However, the fact remains that cars on the road (whether they be older vehicles or LEVs) will contribute to congestion, reducing efficiency for transit service, and may become involved in collisions all factors that have long-term societal, economic and environmental implications. This reaffirms the importance placed by the City on integrating transportation and land use strategies to discourage dependency on car travel. 5 P a g e

The City has lower-than-average per capita GHG emissions (compared to elsewhere in BC), which is attributed to its compact urban form and good balance of jobs to residents. However, it is evident that with future improvements for non-motorized transportation modes there is potential to reduce car trips significantly. One approach would be to pinpoint corridors or areas of the City with the highest vehicle emissions, so the City can make targeted infrastructure or policy changes. This type of approach may be facilitated by determining indicators such as total emissions and a per trip GHG emission estimate. The sample map shown below provides an illustration of how local transportation patterns could be translated into GHG emission per trip estimates. The red areas would indicate spots or corridors with the greatest GHG emissions per trip based on information such as traffic volume, vehicle composition and the type of transportation modes being used. Similar maps could be made for the total emissions. Sample Map Examining GHG Emissions per Trip 6 P a g e

5.3 Walking and Cycling Currently the City s cycling and walking mode shares compare favourably with the region. Given the City s compact urban form and promotion of healthy lifestyle choices, there are great opportunities to further develop the walking and cycling networks. While the bike network has been gradually developing in recent years, it must be recognized that the quality and consistency of facilities determine whether key bike routes can attract new users who would otherwise complete their trip by personal vehicle. Physical barriers exist throughout the City for pedestrians and cyclists these include creeks, topography, high-volume roads and rail lines. Easing the impact of these physical barriers through implementation of bicycle and pedestrian infrastructure projects will facilitate short distance trips, as well as provide better connections to local and regional transit service. Overcoming the topographical conditions found on the North Shore may require the use of innovative methods with regards to pedestrian and bicycle facility construction. For example, the City has studied the potential for a bike elevator (such as a one located in Norway) to assist cyclists travelling up the Lonsdale corridor. Overall, creating quality, safe, consistent and reliable facilities is essential to draw users to bike, pedestrian and transit facilities. In addition to the environmental benefits of non-motorized transportation, the active lifestyle effects are also notable. For each trip that is taken on foot or bicycle, a body benefits from the physical exercise. The personal health benefits that result from habitual walking and cycling trips create positive societal health impacts. In addition, the presence of people walking and cycling on City sidewalks or streets creates a more animated street character that further encourages trips by these modes. 5.4 Transit Transit improvements in North Vancouver must be accelerated in order to capture a greater number of local and regional trips and achieve a larger mode share. Well-used public transit systems are highly effective in reducing greenhouse gas emissions, by offering passenger trips that would have otherwise been taken in a single occupant vehicle. The shift towards using public transit (from single occupant vehicle) is also associated with the important benefits of reducing congestion and collisions. The current hub and spoke bus network in North Vancouver is heavily oriented to the Vancouver commuter market, local transit service lacks direct routes in many areas and overcrowding on some routes is also an issue. In order to increase the transit mode share, improvements to the transit system are essential, such as improved frequency, coverage and accessibility for east-west connections across the North Shore, and connections to downtown Vancouver, across Burrard inlet. 7 P a g e

The CEEP outlines a transit strategy for the City that, if implemented, would provide measurable GHG emission reductions. The strategy is based on progressively improving access to transit through increased bus frequency and coverage of service, increased number of high-speed and inter-city routes, and phasing in natural gas and electric drive vehicles. The CEEP report also involved a sensitivity analysis indicating that increased service over Burrard Inlet by 2020 would be the most effective action for the transportation sector (either as an extension of the Canada Line or a 3rd SeaBus complimented by increased local transit service). At a local level, initiatives have also been identified that could promote the use of transit within the City. For example, the City conducted a preliminary review of fare free shuttle bus systems that could help connect commercial hubs in the City core and assist cyclists traveling up steep hills. Through this work, a green shuttle bus and a merchant transit pass systems with bike carrying capacity were identified as possible initiatives that could be considered in the future. 5.5 Transportation Demand Management Engineering, planning and development work is required to make the most significant leaps forward in the efforts to establish a sustainable transportation system and reduce GHG emissions. However, lesser known Transportation Demand Management (TDM) strategies are also important in engaging the local community to work towards a bigger cause. In 2011, the City will start with a community TDM program, with a focus on schools, and later on expended to include residents and businesses. Some examples of programs that support sustainable transportation include Safe Routes to School, Walking School Bus, and Bike to Work Week. There are also opportunities for workplaces to endorse sustainable transportation behaviour by providing bus pass programs and encouraging employees to cycle to work. There is also a need to examine the way that vehicle parking is perceived, in order to frame parking supply and demand in the context of TDM. Parking management strategies have the ability to influence human behaviour in the sense that trip patterns by personal vehicle are completely dependent on the availability of parking. There are opportunities for the City to focus on parking strategies such as modifying bylaw requirements, restructuring the current parking permit program and pushing forward the concept of pay parking. 8 P a g e

5.6 Goods and Services Movement The mobility of vehicles that move goods and services is an important part of a healthy city, given the high environmental and economic consequences of congestion. Studies show that 80% of Canada s population now lives in urban centres, and the majority of future economic growth is projected to occur in six major urban centres (including Metro Vancouver.) Most trips taken in urban centers are driven by the economy, either to earn a living or for commerce. In 2008, Transport Canada estimated that the total annual cost of congestion ranges from $4.4 to $6.7 billion in major urban areas. The bulk of this cost represents the value of time lost to car travelers, with the remainder being the costs associated with fuel and greenhouse gases emitted during congestion. The Transport 2040 highlights Metro Vancouver s importance as Canada s primary gateway to the Asia-Pacific. It t projects a tripling of container traffic between 2006 and 2020, and notes future challenges associated with providing efficient truck access to key facilities such as Port Metro Vancouver. The North Shore Port terminals currently handle 21% of all cargo volume through the Port of Vancouver, with a value of over $10.5 billion. Over the long term, the North Shore Trade Area is also expected to experience significant commodity growth. Given the importance of the North Shore terminals for the national economy, over the next several years significant investments by various levels of government and rail operators will be made to improve the North Shore rail and road infrastructure to create more reliable, less congested system, expected to reduce the cost of congestion and GHG emissions. In the City, delays on the road network slow down the movement of goods and services, which has economic implications. In addition to the economic factor, there are also the proportionately large emissions of greenhouse gases from heavy duty trucks. As such, improvements to support efficient movement of goods and services are needed; however, potential negative impacts on local neighbourhoods should be recognized and addressed. The City s waterfront mix of industrial, residential and commercial uses presents a challenge, and to reconcile competing interest of liveable community and healthy economy. 5.7 Regional Collaboration It should be recognized that the City s progress towards developing a sustainable transportation system is highly dependent on the actions of higher levels of government. The recently completed Metro Vancouver s Regional Growth Strategy 2040 supports sustainable transportation choices via coordination of land use and transportation to encourage non-automobile modes and safe and efficient movement of vehicles for passengers, goods and services. The Region s transportation strategy, Transport 2040, outlines a long-term plan that considers key challenges for Metro Vancouver, such as regional land use and environmental objectives, anticipated population growth, safety and security and economic development. The goals outlined in Transport 2040 are related to reducing GHG emissions, providing opportunities for residents to complete most trips by non-automobile modes, concentrating jobs and housing along the frequent transit network, 9 P a g e

supporting transit system growth and creating sustainable funding for transportation improvements. Over the next few years, TransLink will be updating this document to Transport 2045 Strategy. Regarding the North Shore plans, TransLink recently started with the Area Transit Plan, a 30-year long vision for the transit system evolvement on the North Shore, which is an essential component of our transportation system to reduce negative effect on climate change, and ensure the liveability of our community for the long term. The regional plans are very important to the City s advancement towards becoming a more sustainable community, and our ability to move forward with various projects. For the City, improving access to transit is one of the most important steps towards reducing car trips and GHG emissions. The City is dependent on improvements to the Regional and local transit system in order to support other local initiatives that would increase walking, cycling and transit modes. Slow progress towards 2040 goals at the Regional level would mean limited travel choices for City residents, forcing continued dependence on car travel. Thus, it is important to ensure that the impacts of Regional plans (such as Transport 2040, Area Transit Plan) on the City s OCP and Transportation Plan be considered in the context of the OCP update. As well, it should be recognized that the District of North Vancouver is currently updating their OCP, and considering interconnectivity of our transportation systems and mutual impacts, the effect of their plans should also be considered in the OCP update. 6.0 TRANSPORTATION IN THE OCP UPDATE The City s Long-Term Transportation Plan is intended to serve as the road map for sustainable transportation in the next decade, and the CEEP also states an overall goal of working towards a mode split with a higher concentration of transit use, carpooling, walking and cycling. The 100 Year Sustainability Vision calls for a mobility network that accommodates a range of transportation modes, with two goals: provision of mixed-use corridors accessible to all and compact neighbourhoods where citizens live within a five-minute walking distance to various services and transit. The Regional Plans encourage trips by non-automobile modes, transit oriented development patterns, with the growth focused in urban centres and frequent transit development areas. Efforts to balance safe, efficient and accessible transportation planning concurrently with climate change challenges will have implications for the local community and for the broader North Shore population. Considering the policy direction provided by this previous work, the challenging task of framing the current sustainable transportation issues in the context of the OCP 2021 & Beyond process is now at hand. In the course of examining the current transportation trends and challenges faced by the City, several dominant themes have emerged for discussion: 10 P a g e

1. The City must work towards efficient implementation of the endorsed Transportation Plan, while implementing infrastructure projects that achieve the greatest possible reduction in GHG emissions. 2. There is much work to be done to create a sustainable transportation system, before measurable GHG emission reduction results will be realized. 3. Technological advances in low emission vehicles must be accompanied by local changes in lifestyle and behaviour, in order to maximize the potential for GHG emission reductions. 4. With an intense focus on linking transportation and land use strategies, the City will continue to create a vibrant, walkable and sustainable community, with reduced dependency on cars. 5. The City s built transportation infrastructure needs to be shared by all road users, and addressing the conflicting needs and hierarchy of transportation modes will be a constant challenge. 6. The mix of industrial, commercial, institutional and residential uses will continue to create a challenge on how to reconcile the competing interests of a liveable community, a healthy economy and service needs. 7. The City needs to continue to work with the neighbouring municipalities and other levels of government to make a significant shift towards non-automobile modes and achieve the greatest reduction in GHG emissions. While these themes establish a starting point for the OCP 2021 & Beyond discussion of transportation, mobility and access, it is necessary to pose specific questions to the community to stimulate a dialogue. Questions to inspire discussion may include: What actions should the City take to encourage changes in human behaviour and assist residents adapt to more sustainable ways to move within the community (such as walking, cycling or taking fewer trips)? What are the biggest opportunities and obstacles facing the City, when it comes to creating a sustainable, resilient transportation system that is less dependent on the single occupant vehicle? 11 P a g e

7.0 AVAILABILITY The City s Long-Term Transportation Plan is available online at: http://www.cnv.org/transportationplan. 12 P a g e