TOWN OF VIEW ROYAL COUNCIL REPORT - REZONING – 2861 CRAIGOWAN ROAD (CHRISTIE POINT) TRANSPORTATION UPDATE

REZONING – 2861 CRAIGOWAN ROAD (CHRISTIE POINT) TRANSPORTATION UPDATE

RECOMMENDATION

THAT Council receive this report for information.

CHIEF ADMINISTRATIVE OFFICER’S COMMENTS

I concur with the recommendation.

DIRECTOR OF DEVELOPMENT SERVICES’ COMMENTS

I concur with the recommendation.

DIRECTOR OF ENGINEERING’S COMMENTS

I concur with the recommendation.

DIRECTOR OF PROTECTIVE SERVICES’ COMMENTS

I concur with the recommendation.

PURPOSE OF REPORT

The purpose of this report is to present an update to the transportation analysis component of the Christie Point property rezoning at 2861 Craigowan Rd.

BACKGROUND

The applicant submitted a Transportation Impact Assessment by Bunt & Associates as part of the rezoning application. Staff has engaged Opus International Consultants to review the Bunt & Associates report for the benefit of a second opinion. Bunt subsequently provided a response to the Opus report. All transportation consultant reports are attached to this report.

PROJECT INFORMATION

The Opus report is divided into six sections, plus conclusions and recommendations:

1. Existing Network Conditions
2. Trip Generation
3. Future Background Traffic and Total Conditions
4. Parking
5. Transportation Demand Management
6. Intersection Control and Lane Configuration of Shoreline/Island Highway Intersection
7. Conclusions and Recommendations

The Opus report reviews and critiques the Bunt report throughout. This report will follow the six headings and will discuss each issue in the context of the Opus report and staff’s conclusions drawn from the report. Opus’ conclusions and recommendations will be expressed throughout.

Existing Network Conditions

Both the Bunt and the Opus reports agree that the network is ‘nearing capacity’ during the afternoon peak hour. Opus observed “major delays in the westbound, northbound and southbound directions at Island Highway/Craigflower Road at Admirals Road intersection from approximately 3pm to 5:30pm. Both reports indicate that the morning peak hour at that intersection is far less busy.

Trip Generation

The primary consideration for trip generation from the new development is the impact on the afternoon peak hour on the network; Bunt has also provided analysis for morning peak periods.

The Opus report states that the trip generation numbers of 0.28 trips per unit for the afternoon peak hour is below the industry standard. The basis for this estimation was the “demographic assumption of higher retirees and home based businesses as well as based on promoting alternative transportation strategies such as cycling and transit with less reliance on the vehicle for travel. This represents a ‘best-case’ scenario.”

Opus recommends considering a 0.39 to 0.52 trip rate to reflect the possibility of changing demographics. The 0.39 trips for the afternoon peak would increase the number of trips by 40% more than the original report.

Opus agrees with the Bunt conclusions that the increase in traffic from the Christie Point redevelopment (projected by Bunt to be 1.8% at the intersection of Island Highway/Craigflower Road/Admirals Road) will be negligible and a “relatively modest net impact will occur from a traffic capacity perspective compared to the current conditions…as existing traffic is causing the significant delays along the network in the afternoon peak hour.”

The Opus report states that, if the Christie Point redevelopment were to happen without improvements to the Shoreline/Island Highway intersection, the existing network would go from a current ‘fail’ to further failing regarding southbound traffic from Shoreline Drive to Island Highway, as drivers were only able to turn if westbound vehicles stopped to allow the turn.

Future Background Traffic and Total Conditions

The Bunt report looks at a 10 year horizon of traffic growth. The Opus report suggests that the Bunt report does not model the expected annual growth prediction of 1.5% in addition to their modeling of the traffic generation with the suggested infrastructure improvements. The reasoning behind this is that the network is already at capacity.

The Opus report states that Island Highway has been managing traffic volumes of a multi-lane arterial road (and not the single lane road it is), but that there is not enough data to determine a trend over the last 5 years. The Opus report further states that the addition of the McKenzie Interchange “may change the traffic distribution and monitoring is recommended”.

Parking

The Zoning Bylaw requires:

• 1.5 parking spaces per townhouse/rowhouse
• 1 parking spaces for 0-1 bedroom units
• 1.5 parking spaces for 2 bedroom units
• 2 parking spaces for 3 bedroom units

There has been no definitive mix of units yet proposed for the Christie Point development. Bunt states that the current demand at the site is estimated at 1.32 spaces per unit based on the current proposal for 473 rental units, but that it should be lowered to 1 space per unit because renters have lower vehicle ownership than homeowners. Bunt proposes a rate of 0.15 spaces per unit for visitor parking (for a total of 1.15 spaces per unit).

Realstar is proposing 1.25 spaces per unit, currently; slightly more than Bunt suggests.

Opus believes that at least 1.5 spaces per unit for 3 bedroom units should be maintained, and that 1.3 for 1 to 2 bedroom units should be used. Opus agrees with the 0.15 visitor spaces per unit. This would balance to roughly 1.45 spaces per unit, total, depending on the final proposed unit mix (which is currently not determined).

Transportation Demand Management

Opus agrees with the incentives proposed by Bunt to reduce vehicle use and promote sustainable transportation alternatives. The traffic demand management initiatives will take two forms:

1. The provision of alternate transportation infrastructure (pedestrian and bicycle)
2. The reduction of vehicular traffic through ride-sharing, car-pooling and other initiatives

The proposed improvements to Shoreline Drive (bike lanes, sidewalk, lighting), to the Island Highway/Shoreline Dr (controlled intersection with pedestrian crossings), and to the pathway through Shoreline school (to a regional pathway standard) will enable alternate transportation choices for Christie Point residents, for Shoreline Drive residents, and for Shoreline School students and staff.

Benefits include:

• Better access to the E&N regional pathway for pedestrian and cyclists
• Better access to public transit for east and west-bound passengers along Island Highway
• Better access to potential future Admirals Rd transit routes
• Better pedestrian and cyclist linkages to Admirals Rd commercial areas
• Safer crossing of Shoreline Drive and Island Highway for pedestrians

Intersection Control and Lane Configuration of Shoreline/Island Highway Intersection

The Opus report outlines in detail the technical implementation of the intersection and lane configuration design. There are two main components:

• Installation of a fully controlled intersection (full traffic signal and pedestrian crossing) at Shoreline Drive and Island Highway
• Westbound merge lane from Shoreline Dr along Island Highway, at a 180 metre lane and 85 metre taper.

Regarding the controlled intersection, Opus has this conclusion:

Signalization at Island Highway with Shoreline Drive for pedestrian accessibility and for southbound to eastbound left turn movements will improve delay for exiting vehicles and provide another location for pedestrian mobility. However, the vehicle spillback to Island Highway/Craigflower Road at Admirals Road would require micro-simulation modelling to understand the impact. Signal timing will require coordination to ensure green time is not lost at Island Highway/Craigflower Road/Admirals Road intersection due to spillback. A recommendation on how it would be coordinated and the effect of spillback should be considered in the report

Essentially, the spacing between the two controlled intersections along Island Highway, while short, can potentially be managed with signal timing.

Regarding the westbound merge lane, the Bunt report states that the lane will reduce the bottleneck at the Island Highway/Craigflower Road/Admirals Road intersection. Opus agrees with Bunt that the merge lane will provide benefits to the network, and have recommended that the lane be 180 metres with an 85 metre taper to meet TAC guidelines for a 50 km/h design speed.

ANALYSIS

Transportation Objectives and Policies Within the OCP

It is important to go back to our primary policy documents to help contextualize this information. Both the Official Community Plan and the Transportation Master Plan include strong language that supports additional development on the Christie Point site and supports transportation improvements that support local mobility. Island Highway is not intended to be a regional collector road and the combination of increased density and transportation improvements are consistent with both plans.

The following policies are relevant in conjunction with the consultant reports:

Policy TR1.2 Pedestrian Improvements Enhance pedestrian access and movement through the development of a system of sidewalks, multi-use trails and pedestrian paths integrated with public transit in all areas. Improvements should be carried out according the Transportation Master Plan.

Policy TR1.3 Cycling Infrastructure Promote cycling for commuting, personal transport and recreation purposes through improvements to infrastructure and facilities as identified in the Transportation Master Plan. The inclusion of bicycle parking areas and facilities such as showers, lockers, and change rooms shall be encouraged at commercial, institutional, public, recreational, and multi-family residential development sites.

Policy TR1.8 Transportation Demand Management Encourage Transportation Demand Management (TDM) measures for new developments and existing areas that could benefit from TDM, particularly large employers. TDM plans and strategies should include education, incentives and disincentives, and travel options to support walking, cycling, ridesharing and transit, and reduce single occupancy vehicle trips and private car ownership.

Consider decreasing parking requirements for development proposals that incorporate site-specific TDM strategies and that can demonstrate a decrease in the demand for car travel and an increase in the use of other travel options.

Policy TR1.9 Small Boat Launch Support non-motorized water transportation in View Royal. Investigate opportunities to expand infrastructure for canoes, kayak and smalls boats in Esquimalt Harbour and Portage Inlet. This includes identifying and pursuing opportunities for providing public boat launches, docks and associated facilities.

Policy TR2.2 Access to Services Plan and prioritize new pedestrian, cycling and transit improvements to enhance access to Neighbourhood Centres, Community Corridors, parks, shopping areas, schools and residential areas with higher population densities.

Policy TR3.5 Safe Routes to Schools and Parks Support and prioritize safety improvements on roads adjacent to schools and parks. Encourage the school district and parent associations to develop and periodically update safe route-to-school plans in consultation with the Town.

Policy TR3.11 Encourage Environmentally Friendly Transportation Support more environmentally friendly vehicular alternatives to single occupancy vehicles and private car ownership. This includes encouraging vanpooling, carpooling and ridesharing; car co-ops; and high efficiency or clean energy vehicles.

Principles within the Transportation Master Plan

• Principle 1 Integrate Transportation and Land Use Planning
• Principle 2 Protect Environmental Health
• Principle 3 Incorporate Economic and Social Objectives
• Principle 4 Consider All Modes
• Principle 5 Manage Transportation Demand
• Principle 6 Manage Transportation Supply
• Principle 7 Take a Strategic Approach
• Principle 8 Provide Implementation Guidance
• Principle 9 Provide Financial Guidance
• Principle 10 Measure Performance
• Principle 11 Involve the Public and Key Stakeholders

DISCUSSION AND CONCLUSION

The Official Community Plan Policy LU8.4 Christie Point is as follows:

Encourage any future redevelopment at Christie Point to include a mix of medium-density residential and park uses. Development at this location should be carefully reviewed to ensure that environmentally sensitive areas are protected, potential sea level rise issues are addressed, and safe and efficient road access from the Island Highway is maintained.

This is a land use policy, and land use and transportation are fundamentally linked. In considering the approach to transportation management for the proposed Christie Point development, Council must consider the proposal in terms of the policy objectives contained within the Official Community Plan.

It is apparent from reading both the OCP Transportation Policies and Objectives and the Transportation Master Plan principles that a shift to alternative, sustainable transportation is desired by the Town. There is also the notion of increasing access to services and creating safe routes to schools and parks. The proposed improvements to the transportation infrastructure as discussed within this report speak directly to these policy statements, and provide a clear improvement over current conditions. The proposal will improve alternate transportation choices and safety for cyclists and pedestrians regardless of any increased vehicle traffic generated by the proposed development.

Then there is the discussion of increased vehicular traffic. Both the Bunt and the Opus report agree that the problem with traffic volume in the current network is existing traffic. The traffic is regional in nature, serving through-traffic from and to other municipalities.

The Town did not design Island Highway to be an arterial road serving other municipalities. At one lane with traffic calming infrastructure and perhaps the most beautiful retaining wall in Canada, it is a local thoroughfare owned by the Town, maintained by the Town, and designed to serve the Town. The solution for regional traffic volume is the Trans Canada Highway, which is currently undergoing an $85-million dollar interchange improvement at the Mackenzie intersection to better serve regional function.

Staff makes the recommendation to Council to put the land use planning and development goals of the Town of View Royal first in their list of priorities when considering how best to use the Town’s transportation infrastructure, and this includes the redevelopment of Christie Point.

RECOMMENDATION:

THAT Council receive this report for information.

SUBMITTED BY: J. Davison, MCIP, Planning Technician

REVIEWED BY: L. Chase, MCIP, Director of Development Services

ATTACHMENTS:

1. Christie Point TIA Review – Opus International Consultants – March 8, 2017
2. Christie Point TIA - Bunt & Associates Transportation Planners and Engineers – December 1, 2016
3. Memo—Christie Point TIA Response – Bunt & Associates Planners and Engineers – April 11, 2017