CITY OF KINGSTON - CYCLING AND PATHWAYS STUDY November 2003 Table of Contents Page Executive Summary 1 1.0 Introduction 1.1 Study Background and Context 16 1.2 Study Assumptions 19 2.0 Methodology 2.1 Summary of Methodology 21 2.2 User / Interest Groups 22 2.3 Development of the Facility Network Master Plans 24 3.0 Findings 3.1 Public Consultation 26 3.2 Opportunities and Constraints 27 4.0 Recommendations 4.1 Summary of Recommendations 31 4.1.1 City Policy 31 4.1.2 Existing Facilities 31 4.1.3 Future Facilities and Master Plans 33 4.1.4 Facility Standards and Guidelines 34 4.1.5 City By-Laws 36 4.1.6 Planning Issues 37 4.1.7 Support Programs 37 4.1.8 Methods of Managing Risk and Liability 38 4.1.9 Future Studies and Monitoring 40 4.2 Potential Facility Network 42 4.2.1 Typical Forms of Recommended Facilities 42 4.2.2 Pedestrian Focus 50 4.2.3 Recreational Focus 51 4.2.4 Utilitarian Cycling Focus 52 Page i of ii CITY OF KINGSTON - CYCLING AND PATHWAYS STUDY Table of Contents Page 4.3 Potential Support Programs 54 4.3.1 Cycling Education 54 4.3.2 Promotion and Awareness 58 4.3.3 Enforcement 62 4.4 Facility Design and Maintenance Guidelines 65 4.5 Implementation Strategy 105 4.5.1 Description and Cost Estimates of Potential Initial Projects 106 4.5.2 Description of Potential Long-Term Projects 135 4.6 Policies 139 4.6.1 Official Plan Amendments 139 4.6.2 Pathway Use Policy 144 4.6.3 Draft Crossing Policy 146 4.6.4 Accessibility Policy 146 4.6.5 Sustainability and Public Health Policy 147 5.0 Conceptual Planning of the Kingston Downtown Waterfront 149 6.0 Conclusion 172 7.0 List of Maps 1. Regional Context - Existing Facilities & Master Plan 2. Urban Area - Existing Facilities 3. Urban Area - Pedestrian Focus Master Plan 4. Urban Area - Recreational Focus Master Plan 5. Urban Area - Utilitarian Cycling Master Plan 6. Downtown Waterfront Concept 8.0 Appendix One – Glossary of Terms 9.0 Bibliography Page ii of ii Executive Summary Background and Purpose In October 2002, the City of Kingston adopted a Community Strategic Plan. The Community Strategic Plan was the result of an extensive community consultation process. The Plan identified 12 initiatives to be acted upon during the life of the strategy. One of these initiatives was the Official Plan initiative. The Official Plan initiative includes a Waterfront Strategy to develop a single updated and integrated approach to the waterfront and a Transportation Master Plan to provide a balanced and sustainable transportation system. Furthermore, there was increasing public demand for more recreational pathways and greater waterfront access. As a result, it was recognized that there was the need for a comprehensive review of the cycling and pathway systems for the entire new City of Kingston. The purpose of the Kingston Cycling and Pathways Study is to provide the City and its’ citizens with ideas and direction. This work has been based on thorough investigation of local opportunities and challenges. It has benefited from ongoing input from community user / interest groups and the general public, who have attended a number of meetings and open houses. The Study draws from the experience of other municipalities and, represents the state of the art in planning for pedestrians and cyclists. It also explores a number of misconceptions associated with these modes of transportation. The Kingston Cycling and Pathways Study presents a vision of what could be. It recommends the programs and facilities that would provide pedestrians and cyclists with an obtainable level of reasonable service. The Study is not intended as an exercise in advocacy or to assess feasibility. The Study requires that the City, through its’ staff, user / interest groups and citizens, rally and develop strategies to make the ideas presented a reality. The City of Kingston is approximately 453 square kilometres in area with the urban/ suburban area comprising 12 percent of the City’s land base and 78 percent of the City’s 2001 population of 114,195 persons. The City of Kingston is projected to have a population of nearly 147,000 persons (medium projection) by the year 2026. There is over 150 kilometres of shoreline in the City, fronting on Lake Ontario, the St. Lawrence River, the Great Cataraqui River and the Little Cataraqui Creek. Currently, the City of Kingston waterfront pathway system extends approximately 19 kilometres. The City has an abundance of parks, open space areas, recreational uses, historical and environmental sites and attractions, many of which could be linked with an improved pathway system. The City currently controls, through ownership / lease / right-of-way a significant amount of public open space, of which waterfront property is a major component. There are two nationally renowned attractions, the Rideau Canal and Fort Henry. Page 1 of 173 The City of Kingston offers a variety of existing transportation components that give a wide range of choice to residents and visitors. The key transportation components include the following: • Approximately 803 kilometres of roadways in a variety of roadway classifications; • An existing waterfront pathway system in the former City of Kingston along part of the Lake Ontario waterfront and the Great Cataraqui River; • An urban pathway system comprised of sidewalks, subdivision walkways and linear parklands; • Limited on-road cycling facilities; • A section of the Rideau Trail; • Linkage to four regional highways including Highways Number 2, 15, 33 and 38 of which many locations have paved shoulders of various widths; • A municipal airport, a regional bus terminal and a rail passenger station with regular VIA train service; and • A municipal urban transit system consisting of standard buses. There are four important studies / strategies which will impact this Kingston Cycling and Pathways Study. The Transportation Master Plan, a two-year project, expected to be complete in 2003, proposes integrated multi-modal improvements to the municipal transportation system. The Urban Growth Strategy provides direction as to the areas of potential growth from the perspective of planning, servicing and financial considerations. The Downtown Action Plan examines above ground infrastructure and landscaping in the downtown. It is to be completed in 2003. The fourth strategy, a waterfront strategy, was identified in the Community Strategic Plan and selected by City Council as a priority item for completion. The City has completed a waterfront visioning exercise and is currently preparing a work plan to undertake a waterfront strategy. City Council, through its waterfront visioning exercises in November and December 2001, established some broad principles for the waterfront. The Waterfront Regeneration Trust, a not for profit charitable organization, has been working to facilitate the regeneration of the Lake Ontario waterfront. Central in this regeneration is the long-term goal of implementing the Lake Ontario Waterfront Trail, a multi-use pathway/greenway extending from Niagara-on-the-Lake to Trenton and beyond. Locally, the Waterfront Working Group is working to extend the trail eastward from Napanee and the Glenora Ferry to connect to Kingston, Gananoque and Brockville. The Kingston Cycling and Pathways Study has been commissioned and executed at an opportune time. Some of the reasons for this are as follows: • As a result of extensive public consultation, there is a pro-walking and cycling objective in the Kingston Transportation Master Plan. • The public shows an interest in high-profile multi-use pathways, cycling in general and increased access to Kingston’s waterfront lands. Page 2 of 173 • There is increasing interest in extending the Lake Ontario Waterfront Trail easterly to and through Kingston. This facility is currently being established between Niagara-on-the- Lake and Trenton. It has received significant funding from federal, provincial and municipal governments. Kingston is well positioned to make itself a Canadian leader in encouraging travel by pedestrians and cyclists. The City benefits from access to Lake Ontario and the Great Cataraqui River waterfront. It has a compact and vibrant downtown and University that are the cultural and commercial heart of the region. Kingston has four significant groups that are interested in pedestrian and cycling travel, those being Queen’s University students, visiting tourists, active seniors and urban professionals. Despite winters that can provide long periods of snow cover, it is possible to walk or cycle the majority of the year. Kingston is relatively flat and benefits from good air quality, compared to other cities, that supports physical exercise. Methodology The methodology for the Study included the following: • A review of previous studies, reports, mapping, correspondence and meeting minutes relevant to the Study. • A digital (AutoCAD) base plan was developed from information supplied by the City. Regional context, urban area and downtown waterfront focussed maps were produced. • The Study prepared an inventory of existing linear facilities proposed by the City and others. This information was confirmed by the consultants in the field, and then shown on the Study Facility Network Master Plans. These plans were displayed at public open houses and at meetings with user / interest groups, where additions and connections were made. The Kingston Cultural Services, Engineering and Planning Divisions also reviewed these plans. • Lists of destinations relevant to pedestrians and cyclists were compiled. Recreational, utilitarian, student and tourist interests were anticipated. • Facility Network Master Plans were developed initially on field checks of facilities proposed by others, but also on map study and investigation by the consultants across the City. The road network, open space systems and anticipated desire lines for users for possible crossings of private property were all investigated for potential facilities. The connection of destinations and the continuity of facilities was the desired objective.