TRANSPORTATION MASTER PLAN
Policy Papers
CANSULT/MARSHALL MACKLIN MONAGHAN JOINT VENTURE
in association with
Cumming + Company Hemson Consulting Dalton Consulting R.M. Soberman CONSULTING ENGINEERS • SURVEYORS • PLANNERS YORK REGION TRANSPORTATION MASTER PLAN
POLICY PAPERS
Table of Contents
No. 1 Public Transit Tranplan October 2000
No. 2 Transportation System Marshall, Macklin, October 2000 Management & Intelligent Transportation Monaghan Systems
No. 3 Transportation Demand Cansult October 2000 Management & Telecommuting
No. 4 Air Quality & the Environment Cansult October 2000
No. 5 Goods Movement & the Economy Cansult October 2000
No. 6 Pedestrians & Cycling Marshall, Macklin, October 2000 Monaghan
No. 7 Asset Management Marshall, Macklin, November 2000 Monaghan
No. 8 Funding Hemson October 2000
Key Issues, Challenges and Strategic Options Cansult December 2000
A Transportation Vision for York Region Cansult April 2001 TRANSPORTATION MASTER PLAN
Policy Paper No. 1
PUBLIC TRANSIT
For Discussion Purposes Only
October 2000 TABLE OF CONTENTS
1.0 INTRODUCTION & BACKGROUND...... 1
2.0 TRANSIT PLANNING & POLICY INITIATIVES ...... 1
2.1 York Region Official Plan Policies...... 1 2.2 Subsequent Transit Planning & Policy Initiatives ...... 2 2.3 Progress to Date ...... 5
3.0 TRANSIT SERVICE ISSUES AND OPTIONS...... 6
3.1 Context...... 6 3.2 Transit Markets...... 9
4.0 RANGE OF TRANSIT PLANNING AND POLICY OPTIONS ...... 14
5.0 MOST PROMISING DIRECTIONS FOR CHANGE ...... 15
6.0 BIBLIOGRAPHY...... 18
Prepared By: Tranplan Associates October 2000
York Region Policy Paper No. 1 Transportation Master Plan Public Transit Page 1 of 18
1.0 INTRODUCTION & BACKGROUND
This paper, as part of the Phase 1 review of current policy and funding issues, is intended to stimulate the discussion of transit planning and service issues and related options. It reviews transit planning issues in the context of the York Region Official Plan policies and plans, and explores related planning and policy options.
Current York Region transit services are provided by the area municipalities and GO Transit. Conventional transit systems serve Newmarket, Aurora, Vaughan, Richmond Hill and Markham while specialized services are provided in the five urban municipalities as well as in Whitchurch-Stouffville and Georgina. Municipal transit services in York Region are operated by private contractors or, in the case of most north-south routes crossing Steeles Avenue, purchased from the TTC.
GO Transit operates three types of service in York Region: commuter rail service to downtown Toronto on the Bradford, Richmond Hill and Stouffville Lines, local bus routes on Yonge Street and Bayview Avenue, serving the Finch Subway Station, and a variety of inter-city coach type routes that connect communities in York Region and serve a variety of destinations in Toronto.
2.0 TRANSIT PLANNING & POLICY INITIATIVES
2.1 YORK REGION OFFICIAL PLAN POLICIES The York Region Official Plan provides a transit-oriented policy framework for land use and transportation planning in York. The current Official Plan, which was first approved in October 1994 and has incorporated numerous amendments over the 1994-1999 period, includes the following objective:
“To provide transit service that is convenient, accessible and equitable to all residents of York.” 1
Further to this objective the Official Plan identifies a wide range of transit supportive planning policies. For example, these policies specify that:
S “…a fully coordinated public transit system” will be developed,
S York Region communities will be planned “…on the basis of significantly increasing public use of transit” including a thirty year target that “…one third of all peak period trips” be by transit in urban areas.
S higher transit usage will be achieved by: S “…supporting improvements in service, convenient access and good urban design” including “…minimizing walk access to anticipated transit stops…”, S “…providing bus bays, bus shelters, and bus loops where required” and S “…locating medium and higher density urban development adjacent to transit intensive urban arterial roads.”
1 See page 68, York Region Official Plan – Office Consolidation, as of July 13, 1999.
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S “…providing for and promoting provision of parking and drop off facilities for commuters at appropriate locations…” S “…providing transfer facilities at appropriate locations;” S “…providing continuous collector road systems that permit the linking of adjacent developments with direct transit routings;” S “creating site plan control that gives priority to pedestrian access to transit over automobile access and parking in urban areas”.
In addition, the Official Plan specifies that the Region will coordinate with area municipalities, operating agencies and the Ministry of Transportation “…in the planning, coordination, integration and operation of existing and new transit services and to encourage increases in transit mode splits across the Region’s boundaries.” The Region will also “…support a consistent and equitable transit fare strategy throughout York Region and to ensure that this fare structure is integrated with transit services in adjacent regions as well as with GO Transit” and promote the implementation of a regional rapid transit network including specific GO Rail, TTC Subway, transitway and HOV elements.
As noted in the recent Neptis Foundation study on “The Evolving Physical Condition of the Greater Toronto Area: Space, Form and Change,” York Region’s Official Plan
“…is very proactive in its identification of a conceptual transit network in support of development in the region.”2
The proposed rapid transit elements of this conceptual network include the extension of the Spadina Subway to York University “…and possibly north linked to Highway 7”, and the extension of the Yonge Subway to Highway 7.
In relation to commuter rail services, the OP proposes that all-day two-way service be introduced on the three lines serving York Region, that the Richmond Hill line be extended to the Highway 404/Bloomington Road area, and that additional inter-modal stations be added to the existing GO Rail lines within York Region and Toronto.
In addition to rapid transit and commuter rail proposals, the York OP identifies additional higher order facilities, including a transitway in the Highway 7/407 corridor and “high- occupancy vehicle (HOV) lanes to facilitate bus movement in congested areas”.
2.2 SUBSEQUENT TRANSIT PLANNING & POLICY INITIATIVES The higher order transit elements identified in the 1994 Regional OP have been subject to continued study and refinement through local, Regional, Provincial and GO Transit studies.
The 1995 York Region “HOV/Rapid Transit Study” fleshed out the rapid transit concept for the Region confirming the need for east-west and north-south rapid transit links and stressing the need to extend both the Spadina and Yonge Subway lines into York Region. This report also recommended the implementation of HOV lanes on selected arterial roads and Highway 7.
2 Robert M. Wright, “The Evolving Physical Condition of the Greater Toronto Area: Space Form and Change,” Neptis Foundation, February 2000, page 39.
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Local transportation studies (in Vaughan, Richmond Hill and Markham) have generally supported the Regional OP by more or less adopting the Region’s objectives. In many cases the Region’s transportation planning recommendations have been translated into local policy. For example, Vaughan’s OPA 400, June 1995), specified that the City of Vaughan “…in co-operation with both the Region and the Province, shall encourage a comprehensive and attractive transit service, capable of attracting and carrying 30% to 40% of the peak hour commuters to avoid the necessity of additional arterial lanes beyond those envisaged by the City-Wide Transportation Strategy.”
In line with this general policy, Vaughan Council adopted specific policies intended to improve transit service, improve access to transit for local residents, and encourage higher density developments along arterial roads and at major intersections that are accessible to higher levels of transit service.
Similar initiatives were identified in Richmond Hill and Markham in the 1994-1996 period. Local transportation studies recommended transit supportive land use planning and policy measures but assumed ongoing Provincial government support for future transit operating and capital expenditures. Local municipalities also agreed to work with the Province and the Region to improve transit services.
2.2.1 Regional Transit Since early 1998, the Region has been actively pursuing Regional Transit through the “Regionally Integrated Transit Task Force”. This exercise has identified a variety of draft bus service proposals for discussion including short-term “Strategic Inter-Municipal Services” for the Highway 7, Major Mackenzie, Yonge, Bayview and Bathurst corridors, and “Other Short Term Improvements” (one to two years), “Medium Term Improvements” (Two to Five Years), and “Longer Term Improvements (Five + years). This initiative has also addressed fare integration strategies and customer information proposals, as well as improved service integration with GO and TTC services, and improved “Special Needs” transit services.
Since November 1999 the “Transit Implementation Committee” has been providing direction to the transition from the current municipal operation of local transit in the Region’s five urban municipalities to the creation of a single integrated Regional transit system that is scheduled to be implemented on January 1, 2001.
2.2.2 Transit Funding Following the Provincial election of 1995, there were major shifts in transportation policy including the downloading of Provincial transportation responsibilities to local government. This included the staged elimination of Provincial capital and operating subsidies to public transit. By the end of the 1990s, local governments were expected to fund public transit, including the operations of GO Transit in the GTA, from the property tax base. Development Charges are the only other current source of capital funds for transit, although current Provincial government policy specifies that such funds cannot be used to provide improved service levels. The Provincial Development Charges Act specifies that the planned level of service funded by Development Charges cannot exceed the average provided by the local municipality over the last ten years.
In 1999, the Region’s “Transit Programme for 1998-2021 Development Charges Bylaw” was approved. This bylaw provides for partial funding for HOV lanes on north-south and east-west arterial roads cross the urbanized area, busway stations and sections for
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Yonge Street (Steeles to Highway 9)3 and on Highway 7 (Highway 50 to York Durham line)4, and major transit stations at four locations.5
Concurrently with the downloading of transportation and other responsibilities to local government, the Province set up the Greater Toronto Services Board (GTSB). The GTSB came into being on January 1, 1999 “…to facilitate and co-ordinate decision making by the 30 local and regional councils with the Greater Toronto Area.” While the GTSB mandate suggests that the organization will deal with the full range of services offered by local government in the GTA, the GTSB’s major focus has been on transportation, including overseeing the operations of GO Transit, which had previously been an agency of the government of Ontario. While the GTSB has the responsibility to co-ordinate transportation decision making, it has no dedicated financial resources.
The issue of funding transportation in the GTA and Hamilton-Wentworth was addressed in an April 1999 report entitled: “Funding Transportation in the Greater Toronto Area & Hamilton-Wentworth.” This report concluded that the area’s transportation system “…is in trouble”, but that the municipalities cannot fund the required road and transit improvements with their current financial resources (property tax plus development charges). The assistance of senior governments is required to maintain the quality of the GTA/H-W transportation system and maintain the competitive position of this area as well as the Province and the country.
2.2.3 Greater Toronto Services Board In January 2000 the Greater Toronto Services Board report “Removing Roadblocks” recommended enhanced GO Transit commuter services, including full service on the Richmond Hill and Stouffville lines and extended rush hour services on the Bradford line. In addition, the GTSB report recommended enhanced “rapid transit services” in three York Region transit corridors: York University from the Vaughan Corporate Centre through York University to Downsview Station, North Yonge from Newmarket to Finch Station on the Yonge Line and Highway 48 from Markham to Scarborough City Centre. The report also supports the development of a higher-order transit service in the Highway 7/407 corridor through York Region providing inter-regional connections.
While the GTSB is looking at the long term transit service improvements across the GTA, the GO Transit 10 Year Capital Plan for 2001-2010 approved by the GTSB in June 2000, focuses on rebuilding Union Station, the system’s central terminal, to accommodate “more trains and larger crowds,” adding track capacity and rail equipment to increase capacity, and a variety of other state of good repair and service oriented measures.
The identified “corridor improvements” for York Region are limited to the addition of one new train for the Bradford corridor and two new trains in the Stouffville corridor. No service improvements or service extensions are planned for the Richmond Hill line and there are currently no plans within the ten year time-frame for all day service within York Region.
3 Not including HOV lanes between Highway 7 and Elgin Mills. 4 Not including section through Woodbridge. 5 Richmond Hill Centre, Markham Centre, Vaughan Corporate Centre and Newmarket Centre.
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2.3 PROGRESS TO DATE While the policies, plans and studies outlined above have supported the basic concepts and transit targets set out in York Region’s OP, little progress has been made to date on achieving the policy objectives. Despite the calls for increased development densities (including nodes and corridors), improved transit access to residents through provision of mid-block collectors, and improved transit service levels, little has been achieved on the ground. Transit service levels have not improved, nor has the accessibility to transit and, therefore, transit mode splits have declined over the last decade.
As noted in the York Region Transit Project “Interim Report” (July 6, 2000): “Both the level and quantity of public service has not kept pace with growth.” Levels of service per capita and per capita spending by the urban municipalities have all declined over the 1995-1999 period.
Reduced service levels and trends in travel and transit use have reduced overall mode splits, rather than moving the Region towards its goal. Whereas the Region’s Official Plan has a 33% modal split target during peak periods in the urban areas by 2021, the current AM peak modal split for York Region residents is about 8%, based on the 1996 TTS survey, having declined from 10% in 1986. As noted in the interim report: “To meet the Regional modal split targets, public transit will have to handle as much as 50% of all new (AM peak period) trips made within the Region.” Regional staff report that the rapid growth in auto traffic crossing the Steeles Avenue screenline between 1995 and 1998 suggests a continued decline in transit mode splits for travel between York Region and the City of Toronto.
The reasons for the failure to improve transit services relates primarily to economic and political factors. The 1990 recession forced cutbacks in government spending at all levels. Also, in 1996, following the change in government, major changes in the Provincial funding of urban transportation were introduced. This included changes in the allocation of responsibilities between the Provincial and municipal levels of government including the staged withdrawal of Provincial capital and operating subsidies for urban transit. These changes had a major influence on transportation planning and the development of improved transit services in York Region, Toronto and the rest of the GTA.
Our review of the current situation suggests that the appropriate policies and plans are in place. However, these policies and plans, including new rapid transit services and improved feeder-bus services, have not been implemented, primarily because of funding constraints. As spelled out in the “Funding Transportation in the Greater Toronto Area & Hamilton-Wentworth” report, the GTA municipalities do not currently have the wherewithal to fund new rapid transit lines or the expansion of local transit (bus) services without new funding sources.
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3.0 TRANSIT SERVICE ISSUES AND OPTIONS
3.1 CONTEXT The York Region Official Plan and subsequent studies have identified the strategic need for a transit solution to York’s emerging transportation problems. It is estimated that the Region’s population will grow from an estimated 1999 figure of 713,000 to 1,280,000 by 2026, an 80% increase while employment will increase by 83%. The South York Region municipalities (Vaughan, Richmond Hill and Markham) are expected to see a 79% population increase over this period. Given recent growth and development, major travel corridors are already congested and the opportunities for additional road capacity are limited. For example, the arterial road system is built to roughly 70% of its ultimate capacity in the southern part of the Region. In short, the road network will not be able to accommodate projected increases in travel demand, even with extensive transit demand management measures. Transit will have to play a much larger role in moving York Region residents to jobs in York Region and Toronto, and in moving Toronto residents to jobs in York Region.
The last ten years of study in York Region and the Greater Toronto Area has identified a wide range of possible transit service initiatives including commuter rail, rapid transit and surface transit options and supportive land use and transportation policies. While there is a great deal of agreement among the various players on the “long list” of possible service options including GO Rail and rapid transit elements and possible local transit service elements, there is little agreement on transit service priorities, beyond the Yonge Corridor higher order transit, (now the subject of an Environmental Assessment Study). Furthermore, there is little agreement on how to fund any specific capital improvements, beyond GO Transit’s modest 10 year capital programme.
The transit challenge for the York Region Transportation Master Plan exercise is to identify the best ways to reverse recent trends in transit use and move toward the Region’s target and define planning and programming priorities. What should be done and when should it be done?
Answering this question requires the recognition of current travel market realities, as illustrated with reference to the 1996 TTS data for travel and transit use in York Region and the findings of the York Region Transit Project. The strongest indicator of the likelihood of using public transit in York Region is auto availability as illustrated by Exhibit 1 which shows mode splits for the residents of the 5 urban municipalities in York Region for five socio-demographic groups that have different levels of access to private automobiles. Those persons who have access to a car at all times (those living in households where the number of cars equals or exceeds the number of licensed drivers) are least likely to use transit and most likely to drive their own cars. In contrast, those persons who can drive but do not have access to a car (licensed but no car) have the highest transit modal splits.
York Region has relatively high car ownership with 1.8 vehicles per household and only 4% of households being without a car. In contrast, 26% of Toronto households have no car. Sixty-seven percent of York Region households have two or more cars. Therefore, the York transit market is overwhelmingly comprised of riders who have a choice of modes for most trips and especially for work trips. On average, there were 1.17 cars per worker for York Region residents. Meeting the transit challenge in York Region requires
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developing transit services that will be competitive with the automobile for a higher proportion of the trips made by “choice” riders. This points to the need for improved transit services including extensions to the “rapid transit” system and improved “feeder bus” service supported by transit priority measures and transit-supportive land use and TDM policies, as proposed in the York Region OP and the other documents referred to above.
Exhibit 1 - Urban York Region Mode Shares Considering Availability of Driver's Licence and Vehicle Access 1996
100%
90% age 11-15 16+ no licence 80% lic. but no car cars
60%
50%
% Mode Split 40%
30%
20%
10%
0% Local Transit (Excl. GO GO Train Auto pass. Auto driver Access) Currently, Toronto’s downtown is the primary destination for “choice” travellers because this is where transit is most competitive in terms of accessibility, frequency of service and connectivity. Parking availability and cost is another important factor that influences mode choice. Where parking is limited and expensive, as in downtown Toronto, transit service is often a competitive option. On the other hand, when parking is extensive and free, the auto is favoured for those who have access to a car.
A recent TTC survey of cross-boundary travel (February, 2000)6 showed that only 11% of commute trips to Toronto from York Region used transit only, while an additional 14% used the car plus transit. The remaining 75% of trips from York Region were by car only. As noted in this survey, transit was most likely to be used where the trip destination is downtown, where trips are made during peak periods, where the traveller did not have access to a car and where there was no access to parking at the trip end. Where parking was not available at the trip destination, more than 60% of commuters chose transit. Where paid parking was available, the average transit mode split (for residents of all Regions) was 40%. In contrast, the average mode split for destinations in Toronto with access to free parking was only 8%. The widespread availability of free parking at suburban employment locations in Toronto and York Region will limit the competitive position of transit for travel to these destinations.
6 As documented in a TTC presentation entitled: GTA Cross-Boundary Study Overview.
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An important indicator of current transit potential is the proportion of trips that are destined for downtown and other transit-oriented destinations, such as the inner city/ mature suburban areas of Toronto. Exhibits 2A and 2B show the travel orientation of total vehicular trips (including transit, school bus, auto driver and auto passenger trips) and transit trips. Whereas about 60% of trips made by York Region residents are destined for York Region (same municipality or other municipality in York Region), and less than 10% of all trips are destined for downtown Toronto, more than 50% of all transit trips that start in York Region are destined for downtown Toronto. In this case downtown Toronto includes the core or CBD as well as mid-town (the Bloor- Yonge/Bloor-Bay area) and the University of Toronto. About 76% of all transit trips starting in York are destined for the City of Toronto.
The above percentages vary by municipality with about 4% of total travel by Newmarket residents and 42% of transit travel by Newmarket residents being oriented to Toronto Downtown. Whereas the average AM peak transit mode split for York Region residents is about 8%, mode splits for travel to Downtown Toronto exceed 50% and modes splits to the downtown core area served by GO Rail can exceed 70%. Note that the 1996 average from urban York Region to the downtown core was only 45% and the highest value observed for York Region municipality was 67% from Richmond Hill. Transit mode splits from parts of York Region to other destinations in the downtown, including the mid- town area and University of Toronto, are low relative to the overall average (48%) and to the mode splits achieved from suburban areas within Toronto. For example, the observed mode splits from Newmarket-Aurora and Vaughan (excluding Thornhill West) were about 40% in 1996, whereas observed mode splits from the northern suburbs of Rexdale, Downsview and Agincourt averaged 58%. The data suggest that it should be possible to achieve large increases in transit travel to downtown Toronto from York Region.
Toronto is the most important transit destination for York residents in the short-term, but accounts for only 35% of total daily travel by York residents – sixty percent of trips are to York Region and 5% to other destinations. In contrast, seventy four percent of all transit trips made by York residents were destined for Toronto, including 50% to downtown, and only 25% of transit trips are destined for York Region. Most AM peak transit trips destined for York are for school trips, rather than for work trips. Considering projected population and employment growth in York and Toronto and the changes in AM peak travel patterns observed over the 1986-96 period, fewer York residents are expected to work in Toronto in the future with more commuting to the developing job opportunities in York Region and to destinations in the neighbouring Regional municipalities. At the same time, however, more Toronto residents can be expected to work in York Region, creating even more pressure on the road system. Commute trips from Toronto to York Region are not well served by transit.
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Exhibit 2A - 1996 Vehicular Travel Orientation (Percentage Distribution of auto, transit and school bus trips originating in York Region Municipalities)
70%
Newmarket 60% Aurora Richmond Hill Markham 50% Vaughan York (Urban)
40%
30% Percentage of total trips 20%
10%
0% same municipality Other municipalities Toronto Downtown Toronto Inner Toronto Outer Other Regions (Incl. in same region (PD1) suburbs (PD2-PD6) suburbs (PD7-PD16) Ham-Wen.) Destination
Exhibit 2B - 1996 Transit Travel Orientation (Percentage Distribution of transit trips originating in York Region Municipalities)
60%
Newmarket 50% Aurora Richmond Hill Markham Vaughan 40% York (Urban)
30% % of Transit Trips Transit of % 20%
10%
0% same municipality Other municipalities Toronto Downtown Toronto Inner Toronto Outer Other Regions (Incl. in same region (PD1) suburbs (PD2-PD6) suburbs (PD7-PD16) Ham-Wen.) Transit Trip Destination 3.2 TRANSIT MARKETS The market for transit services includes a variety of submarkets defined in terms of auto access/availability and travel patterns. Having established that the majority of York Region residents can drive and have access to private transportation, it is clear that transit will have to compete with the automobile for future customers.
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Decisions as to where new services should be introduced and existing services enhanced must consider the ridership potential and service challenges associated with the different travel submarkets. Three major travel submarkets can be identified: Toronto oriented cross-boundary travel; internal travel within York Region and inter- regional travel (primarily to and from Peel and Durham Region).
3.2.1 Toronto Oriented Cross-Boundary Travel The largest transit market today and for the next ten-fifteen years relates to travel between York Region and the City of Toronto. This market, in turn, is composed of a number of distinct submarkets including: S York to Toronto core (or CBD); S York to central area (outside core); S York to north Toronto suburbs (eg. Vaughan to Rexdale/Downsview and York University, and Markham to Scarborough); S York to Yonge corridor (North York City Centre, Yonge-Eglinton, Yonge-St. Clair); S Toronto to York Region.
Table 1 summarizes current AM peak period travel patterns for York Region residents (urban York and total, including the rural municipalities) focusing on distinct destinations within Toronto. As shown, 94% of York Region residents are travelling to destinations in York Region or the City of Toronto during the AM peak with 60% travelling within York Region.
Table 1: Total Peak Travel From York Region (Percent of 1996 AM Peak Period Trips by York Residents – TTS) To Other Other Urban York Toronto Yonge North Total Central Peel (Barrie/ York Region Core Corridor Suburbs Toronto From Area Simcoe) Urban 56% 58% 4.2% 5.3% 4.5% 13.4% 37% 3.5% 1.0% York York 54% 60% 3.9% 5.0% 4.1% 12.3% 34% 3.3% 1.2% Region
In contrast to total travel, transit travel is heavily oriented to Toronto. Whereas 34% of total AM peak travel from York is destined for Toronto, 76% of trips involving the use of transit end in Toronto. Most of these trips, 54%, are destined for downtown Toronto, including the core and the rest of the central area (which includes the mid-town, Bloor- Yonge/University, and the University of Toronto).
Toronto Core The Toronto core submarket is the best-served transit market, given the availability of GO commuter rail services that compete with the car in terms of convenience, speed and cost. This market accounts for only 4% of total AM peak trips from urban York Region, but represents 26% of all AM peak transit trips made by urban York residents. While the current average AM peak transit market share (mode split) to the core for residents of the urban areas within York Region is about 55%, AM peak transit mode splits as high as 75% were observed from parts of York Region in 1996.
The core market still has substantial potential for growth and this potential cannot be ignored, given the expected growth in travel demands to the core and the difference between current and potential mode splits (from 55% to 70-80%). Realizing this
York Region Policy Paper No. 1 Transportation Master Plan Public Transit Page 11 of 18 potential will involve the addition of peak period trains, added stations and parking capacity of stations and improved feeder bus services. The major challenges associated with increasing transit’s share of total travel to the Toronto core and reducing related traffic, relate to current funding limitations, which will make it difficult to keep up with York Region’s growth. It will also be necessary to intercept GO riders earlier, given that most drive their cars long distances before accessing GO Rail services.
Toronto Central Area (Not Including Core) The central area accounts for about 5% of all AM peak travel from York Region and for about 28% of all transit travel in this period. Substantial Increases in transit market shares for trips from York Region to the central area are feasible, based on the comparison of current mode splits from York Region municipalities to the central area outside the core. Whereas mode splits as high as 60% have been observed for travel to the central area, transit market shares from York Region vary from 40% to 50% (and average about 45%). Furthermore, a high proportion of central area transit trips involve the use of an auto to drive to a subway station. Therefore, these trips add to the traffic congestion of the Region’s roads and the Provincial highway network.
Higher transit use to the central area outside the core will require improved transit services, including both rapid transit (ranging from TTC subway to “rapid bus” concepts using bus-only lanes, busways) and improved feeder bus services supported by a range of transit priority measures (HOV, signal pre-emption or queue jump lanes).
Yonge Corridor (North York City Centre, Yonge-Eglinton, Yonge-St. Clair) The Yonge corridor currently accounts for about 5% of total AM peak trips originating in York Region, but for about 8% of all transit trips. Whereas the current average mode split for AM peak travel from York to the Yonge corridor is about 16%, a 33% mode split target appears to be feasible within the next ten years. In the longer term, it may be feasible to increase mode splits for travel from York to this area to 50% or more.
North Suburbs The northern suburbs of Toronto account for approximately 13% of all travel from York Region and for about 8% of all transit trips from York Region. While current mode splits from York to the north suburbs average about 5%, future mode splits of 15-20% should be feasible in the medium to long term. The achievement of the 15-20% target will require improved transit service levels, especially to major trip generators such as York University, and other transit supportive land use and transportation policies, as envisaged in “A Transportation Vision for the City of Toronto Official Plan.” This travel market will benefit from improved connections to TTC subway and improved north-south bus services.
Toronto to York Region As shown in Table 2, AM peak travel to York Region is also dominated by York Region Municipalities and the City of Toronto. Twenty-seven percent of total trips to urban York Region originate in Toronto, but this area accounts for 53% of all AM peak transit travel to the five urban municipalities in York Region. Urban York Region contributes 61% of total travel and 27% of transit travel that is destined to the urban areas of York in the AM peak period.
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Table 2: AM Peak Travel To York Region (Percent of 1996 AM Peak Period Trips made to York Region – TTS) To Urban York York Region From (5 Urban Municipalities) (Total) Urban York 55% 52% (5 municipalities) York Region 61% 62% Toronto Core 0.1% 0.1% Other Central Area 0.7% 0.7% Yonge Corridor 2.3% 2.2% North Suburbs 11.6% 10.8% Total Toronto 27% 25% Durham 3.9% 4.0% Peel 4.9% 4.7% Halton 0.7% 0.6% Other 3.3% 3.5%
Based on recent trends and projected growth, AM peak travel from Toronto to York is another rapidly growing travel market which will contribute to increased traffic congestion on north-south roads crossing Steeles Avenue. While the current mode splits for trips to York from all origins averages only 2%, the average for Toronto origins is about 10% with above average mode splits from the central area (28%) and the Yonge corridor (12%). Improved transit services crossing Steeles Avenue will benefit those Toronto residents who work or study in south York Region and support a modal shift from auto to transit.
Toronto Market Summary Service improvements in the Yonge corridor, within the Region, will support substantial increases in transit market shares for travel to both the central area and the Yonge corridor within Toronto. Such transit improvements would also improve service for the remaining cross-boundary markets, although the benefits of such services would tend to be limited to those origins and destinations that are accessible to transit services that are accessible and offer direct and convenient services.
To a major extent, success in the York-Toronto cross-boundary markets will depend on co-operation with the City of Toronto. The key to success in these markets is to ensure that improved transit services are extended from Toronto into the growing York market and all transit services within South York Region are effectively integrated with TTC and GO Rail services. It will also be necessary to encourage Toronto to increase development in areas where transit is competitive and to improve transit services to those locations which offer the best chance of attracting increased ridership in the short to medium term.7
3.2.2 Internal York Travel While York Region is the destination for 60% of all AM peak trips made by York residents, this destination accounts for less than one quarter of all transit trips made by
7 A related issue is how best to serve Barrie area residents who currently drive through York Region. What is the best way of serving these commuters and minimizing the traffic implications of the continued growth of the Barrie area on York Region?
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York residents. Most of these local transit trips are made for school rather than work purposes, using local transit.
Currently most transit use within York Region is for intra-municipal travel and is served by current local transit services within the five urban municipalities. There are also a number of inter-municipal routes that service internal cross-boundary travel. The planned Regional Transit System should allow the full development of inter-municipal services and increases in local transit market shares.
Currently, the average mode split for internal AM peak travel within York Region is in the 3-4% range. Given that current (1996) transit mode splits of up to 10% have been achieved within York (for travel from Richmond Hill to the Thornhill area which is served by GO Bus services on Yonge and Bayview), this might serve as a reasonable short- term target for internal travel in major transit corridors such as Yonge and Highway 7. In the longer term, however, transit will only be competitive if York Region and the GTA succeed in developing a network of competitive transit services which will facilitate travel between a much wider range of origins and destinations. This implies the operation of frequent service on routes operating on north-south and east-west arterial roads. During peak periods policy headways of 10 minutes or less are desirable for all arterial routes. Minimum policy headways of 30 minutes are desirable during off-peak periods.
In the short to medium term, the challenge is how best to develop the required Regional transit network, given current fiscal realities and the need to recover as much revenue as possible from the farebox. The current study should identify areas within York Region where transit can be made more competitive in the short to medium term and develop this competitiveness through a combination of improved services, improved access to this service (intensification to concentrate development in designated nodes and corridors) and, where feasible, transit supportive policies.
3.2.3 Inter-Regional Travel As of 1996, only 6% of AM peak period trips originating in York Region were destined for the Regions and areas north of York Region, with most of this travel (between 3 and 4%) being oriented to Peel and about 1% being destined for Barrie/Simcoe County.
York Region attracts substantial AM peak travel from the Regions. Durham, Peel and Halton contribute 4%, 4.7% and 0.6% respectively of the total AM peak trips destined for York Region. Other origins, mostly the Barrie/Simcoe area, account for 3.5% of AM peak trips to York Region.
The only existing east-west inter-regional transit service operates between Finch Station and Brampton via Highway 7/Centre Street and Yonge Street. The current transit mode split between York Region and Peel is less than 1%, while the mode split for trips between Peel and York is about 3%. Most of this transit travel involves commuting by persons who live in Brampton and work in Vaughan employment areas that are accessible to Highway 7.
Improved east-west services, particularly in the Highway 7/407 corridor can be expected to attract increased ridership in this growing market, but potential increases in mode split are limited, in comparison with the “York-Region – Toronto” travel market because of the dispersed nature of travel patterns and the fact that employment areas in York Region include extensive areas of free parking. Nevertheless, the size of absolute increases in
York Region Policy Paper No. 1 Transportation Master Plan Public Transit Page 14 of 18 transit ridership using east-west services could be substantial, especially if the Region’s transit network develops to the point where it is convenient to transfer between north- south and east-west services.
4.0 RANGE OF TRANSIT PLANNING AND POLICY OPTIONS
A wide range of transportation planning and policy options have been identified in the Region’s Official Plan and the long list of studies that have been produced over the last fifteen years by York Region municipalities and other agencies.
The aim of the current study, with respect to transit, is to identify transit solutions and priorities (considering specific travel markets, ridership potential and strategic importance), establish realistic short and medium term goals, and flesh out the details of specific projects and/or programmes included the development of service plans and staging strategies. Given current fiscal and political realities, it is important to focus initially on those travel markets that will be successful in the short to medium term and that justify the development of improved service levels.
For discussion purposes, five basic transit options can be defined, as follows:
A. focus on downtown Toronto (core plus central area); B. focus on major Toronto destinations (core, central area, Yonge corridor and northern suburban areas); C. focus on urban York and major Toronto destinations; D. focus on urban York, plus Toronto and the neighbouring Regions; and E. focus on entire York Region plus Toronto and the neighbouring Regions.
Downtown Toronto remains the single location where transit is competitive with the automobile. As noted in section 3.2.1, transit mode splits from York Region to the core and central area remain low, in comparison with the mode splits observed from other trip origins and, therefore, it should be possible to achieve substantial short-term increases in ridership to these areas. A thirty to thirty-five percent increase in transit mode splits for AM peak travel from York Region to Toronto’s central area should be possible given the proposed improvements in GO Rail service, possible extensions to the TTC rapid transit system, and improved feeder bus services to the TTC subway system.
While focusing on travel to downtown Toronto should offer substantial short-term growth opportunities and justify improved service levels on certain north-south routes, it limits York Region’s transit potential because less than 10% of York residents commute to this area (with about half of all trips to the core area).
Extending the scope for improved services to all of Toronto offers much greater potential for a larger modal shift from auto to transit. Toronto destinations outside of the central area and core account for about 28% of AM peak trips originating in York Region and two/thirds of these trips are destined for the Yonge corridor (including North York City Centre) and the northern suburbs (Rexdale, Downsview, Willowdale and Agincourt). Assuming improved cross-boundary services and supportive policies, it should be possible to double current transit mode splits for destinations in the Yonge corridor north
York Region Policy Paper No. 1 Transportation Master Plan Public Transit Page 15 of 18 of the central area and to triple mode splits for cross-boundary travel from York to suburban areas in Toronto north of Highway 401.
While improving transit services to all Toronto destinations and for travel from Toronto to York Region should attract substantial increases in transit patronage in the short to medium term, the key to longer term success is developing a competitive transit network for travel within York Region. Urban York Region accounts for 56% of all the AM peak trips originating in York Region and this percentage can be expected to increase in the future. Current mode splits are low and it will be difficult to achieve large increases in transit use for travel within York Region, given the high levels of car access and the availability of abundant free parking. Nevertheless, the achievement of substantial increases in transit use in York will require large increases in transit use for travel within York. A two to three-fold increase in current mode splits for travel within urban York Region, from 4% to 8-12%, appears to be a reasonable target for the medium to long term.
Higher transit service levels will have to be provided on east-west routes within York Region which will not be justified by demand levels in the short to medium term, if the Region’s transit system is to offer convenient connections to multiple destinations. This would require that minimum peak and off-peak headways be established for all bus routes, so that transferring between north-south and east-west routes is an attractive option. Also, measures must be taken to make transit travel times more competitive with the auto by providing appropriate transit priority measures, including HOV or bus-only lanes, traffic signal priority, and /or queue-jump lanes in locations that experience recurring and severe traffic congestion.
Options D and E involve extending transit services to areas with less ridership potential. Transit potential for peak travel between the rural and urban parts of York is probably limited to school trips, which are currently served by school buses, for the most part. In relation to the Region’s concerns about traffic congestion, there would seem to be little benefit to pursuing Option D. As discussed, the inter-regional travel market included in Option E is growing but has limited short to medium term ridership potential.
5.0 MOST PROMISING DIRECTIONS FOR CHANGE
For the short to medium term (to 2016) Transit Option C is preferred because this option includes the largest and most promising travel markets. These include the core, central area, Yonge corridor and north Toronto suburban areas, as well as travel within urban York Region. Considering all travel markets included in Option C, the maximum transit mode split that could be achieved in the AM peak period for travel originating in York Region would be in the 20% to 25% range by 2026, compared to 8% in 1996. The addition of rural and inter-regional markets, assuming resources were available to offer competitive transit services in these markets, would not increase the average mode split significantly.
Option C calls for a variety of transit service changes involving GO Rail, TTC subway, additional higher-order transit services and enhanced feeder bus services and cross- boundary bus services. In the medium to long term it calls for the development of complete network of transit services covering all of the urbanized areas of the Region.
York Region Policy Paper No. 1 Transportation Master Plan Public Transit Page 16 of 18
In relation to GO Rail services oriented to the core, there is a need to expand the system, adding GO stations and increased parking opportunities within York (to improve accessibility) and improving service frequencies. Increasing the number of GO Stations within Toronto would increase the number of locations within Toronto where GO services may be competitive with the auto but this would also increase travel times. Therefore, the benefits and costs of adding GO stations must be carefully considered before making any specific recommendations.
Given transit market opportunities, the Yonge corridor within York Region stands out as the top priority for transit investment in the short term. Higher-order transit services in the Yonge Corridor would serve the major existing Toronto transit markets (core, central area, Yonge corridor) and major activity centres in the Region which will encourage increased transit use for travel between the Yonge corridor communities (Newmarket, Aurora, Richmond Hill and Thornhill).
The Vaughan Corporate Centre (VCC) to York University and Highway 7/407 corridors are the most significant new transit opportunities and will be important elements of the ultimate York Region Transit network. Extending the Spadina Subway to York University and ultimately the Vaughan Corporate Centre will improve transit access to York University and to all other destinations within Toronto that are accessible to the subway system. It will also improve transit access from Toronto to job opportunities in Vaughan.
The Highway 7 corridor will be important to developing improved transit access and connectivity within south York Region. This corridor serves the entire width of South York Region providing transit links to the Yonge and Spadina-VCC corridors. The Highway 7 corridor can also provide links to transit service in Peel and Durham, as illustrated by Vaughan/Brampton Route 77 (connecting Brampton and Vaughan).
Improved north-south bus linkages between south York Region and the TTC system will also be very important as will improved east-west service connections. This will include better connections to the TTC rapid transit system and higher levels of service on north- south and east-west bus routes.
The elements of the required transit strategy to improve service to Toronto and within York have been identified in previous studies. Also, long term plans to guide the development of the York Region transit system already exist. Therefore, the focus of this study should be the development of a framework for evaluating the individual elements, prior to the identification of long term rail and rapid bus initiatives and the development of supportive land use and transportation policies.
Such a framework could consist of the following four elements:
1. development of Yonge, Spadina to Vaughan Corporate Centre, and Highway 7 corridors as principal transit spines within York Region8; 2. transit priority on a significant portion of the Regional road system serving the urban areas;
8 The Yonge and VCC corridors would benefit from the GTSB plan for ongoing subway construction in addition to the completion of the EAs for the VCC and Yonge subways.
York Region Policy Paper No. 1 Transportation Master Plan Public Transit Page 17 of 18
3. establish minimum service levels (policy headways) for all north-south and east-west bus routes serving York Region to support the development of a Regional transit network; and 4. improved transit access by penetrating residential and employment areas to collect and distribute transit trips.
This framework should be supported by a wider range of planning and policy initiatives including the following: S improved pedestrian and cycling access to local transit services including provision of sidewalks on both sides of all regional roads in urban areas and walking paths to provide access to transit stops; S provision of commuter parking in association with new express bus routes, primarily serving the Toronto market (persons commuting to destinations on the Yonge and University Subway lines); S improved inter-regional bus services on Highway 400 and new services on Highways 404 and 407; S concentrated new residential and non-residential development to support higher levels of service in major corridors and along arterial road;
The future success of transit in York Region will require the development of an integrated network of services that includes the four elements listed above, reinforced with strong planning and policy support.
York Region Policy Paper No. 1 Transportation Master Plan Public Transit Page 18 of 18
6.0 BIBLIOGRAPHY
Funding Issues S Funding Transportation in the Greater Toronto Area and Hamilton-Wentworth S York Region Consolidated 1998 Development Charge Background Study
GO Transit S GO Transit Ten Year Capital Plan
Official Plans and Amendments S A Transportation Vision for the City of Toronto Official Plan S York Region Official Plan S OPA 400 to the Official Plan of the City of Vaughan Planning Area
Neptis Foundation Reports S People and Places: A Portrait of the Evolving Character of the Greater Toronto Area S The Evolving Physical Condition of the Greater Toronto Area: Space, Form and Change S A Region in Transition: The Changing Structure of Toronto’s Regional Economy S Travel in the Greater Toronto Area: Past and Current Behaviour and Relation to Urban Form
Transportation and Transit Planning Studies S York Region HOV/Rapid Transit Study S York Region Transit Project – Interim Report S City of Vaughan Corporate Centre Secondary Plan – Traffic & Transportation Analyses, City of Vaughan S City of Vaughan 1994 Transportation Planning Study S Markham Transportation Planning Study S Highway 7/407 Transit Planning Strategy Study S Transit-Supportive Land Use Planning Guidelines S North Metro Boundary Transportation Review S York Region Transit Study (1989) S Removing Roadblocks – A Strategic Transportation Plan for the GTA and Hamilton- Wentworth S Richmond Hill Transportation Planning Study S Yonge-Spadina Subway Loop Environmental Assessment S “Rapid Bus Cities” (by Martin Hull, in Mass Transit, Nov/Dec 1998) S Transit Realities in the Suburban GTA (Data Management Group, Nov. 1998). S OPA 400 Review Transportation Study – Transit Mode Split Review (TSH – March 2000)
York Region Policy Paper No. 1 Transportation Master Plan Public Transit TRANSPORTATION MASTER PLAN
Policy Paper No. 2
TRANSPORTATION SYSTEM MANAGEMENT & INTELLIGENT TRANSPORTATION SYSTEMS
For Discussion Purposes Only
October 2000 TABLE OF CONTENTS
1.0 INTRODUCTION...... 1
2.0 CURRENT ISSUES AND TRENDS...... 1
3.0 EXISTING YORK REGION POLICIES, PROGRAMS & PRACTICES ...... 3
4.0 EXPERIENCES OF OTHER JURISDICTIONS ...... 5
5.0 TSM AND ITS OPTIONS AND IMPLICATIONS...... 5
6.0 DIRECTIONS FOR CHANGE...... 7
7.0 BIBLIOGRAPHY...... 8
Prepared By: Marshall Macklin Monaghan October 2000
York Region Policy Paper No. 2 Transportation Master Plan Transportation System Management & Intelligent Transportation Systems Page 1 of 8
1.0 INTRODUCTION
This paper examines and assesses the current issues, trends, programs and options for Transportation System Management (TSM), including the use of intelligent transportation systems (ITS), as they may be applicable to York Region.
2.0 CURRENT ISSUES AND TRENDS
The following provides a brief overview of current TSM and ITS issues and trends.
Transportation System Management is receiving increased attention across North America. This is due, in part, to the increased competition for limited road capacity, the inability of transportation agencies to construct new transportation infrastructure in urban areas due to right-of-way and funding constraints, and the desire to recognize a return on the significant investment in transportation infrastructure.
The Transportation Association of Canada championed a new vision for urban transportation in 1993. This vision embodied the concept of sustainable transportation, and recognized the need to use TSM and ITS as a means to optimize the use of existing transportation systems. More recently, the Greater Toronto Services Board emphasized the need for an expanded traffic management system on GTA and Hamilton-Wentworth expressways, including Highway 407, and at key points on all trade corridors to U.S. border crossings.
The City of Toronto is advocating the expanded use of transit priority systems and HOV lanes through its proposed transportation vision for its new Official Plan. Similarly, the Region of Durham’s recently released draft transportation master plan vision and policies include directions for the implementation of traffic responsive signal systems, traffic management and advanced traffic control measures to maximize available road capacity.
TSM encapsulates a variety of practices and methods used by transportation agencies to make the most of their existing transportation infrastructure. These methods can involve a combination of: S operational improvements such as the use of signal pre-emption for transit and emergency vehicles, and high-occupancy vehicle (HOV) lanes; S maintenance improvements such as the repair and enhancement of key communications and computer infrastructure; S minor physical improvements such as the construction of turning lanes and bus bays; and S technological improvements such as the use of high order traffic control and monitoring systems.
ITS is one component of TSM that involves the use of information and communication technologies to better manage and improve how transportation providers offer services to the public. ITS use varies between urban areas, rural areas and political jurisdictions. According to the U.S. Department of Transportation, urban area ITS can be characterized as a combination of several key elements:
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S Traffic Signal Control Systems that are automatically adjusted to optimize traffic flow. S Freeway Management Systems that provide information to motorists, detect problems for increased capacity and flow, and minimize congestion from collisions. S Transit Management Systems that allow new ways of monitoring and maintaining transit fleets through advanced locating devices and equipment monitoring systems. S Incident Management Systems that enable communities to identify and respond to collisions or breakdowns with the best and quickest type of emergency services, minimizing clean-up and medical response time. S Electronic Toll Collection that provides both drivers and transportation agencies with convenient and reliable automated transactions, dramatically improving traffic flow and increasing operational efficiency in toll collection. S Electronic Fare Payment Systems that enable a person to use a single smart card to pay for parking, bus and train fares, as well as tolls. S Railroad Crossings that are coordinated with traffic signals and train movements. S Emergency Response Coordination that ensures the closest available and most appropriate emergency unit can be dispatched to a collision. S Regional Multimodal Traveller Information systems that provide road and transit information to travellers, businesses and motor carriers, so they can adjust travel plans when necessary.
In rural areas, ITS is characterized as a combination of several different key elements: S Traveller Safety and Security technologies that use in-vehicle sensors and information systems to alert drivers to hazardous conditions and dangers. This also includes wide-area information dissemination of site-specific safety advisories. S Emergency Services technologies use satellites and advanced communication systems to automatically notify the nearest police, fire or ambulance unit in case of collisions or other emergencies. S Tourism and Travel Information services use in-vehicle navigation and roadside communications systems to provide information to travellers who are unfamiliar with the local area. These services can be provided at specific locations en route or before travellers begin their trip. S Public Traveller and Mobility Services improve the efficiency of transit services and their accessibility to rural residents. Better scheduling, improved dispatching, smart card payment, computerized ride-sharing and ride-matching systems can be achieved through advanced vehicle locating devices and communications systems. S Roadway Operations and Maintenance technologies improve the ability of highway workers to maintain and operate rural roads. These include severe weather information systems and immediate detection and alert of dangers to work crews. S Fleet Operation and Maintenance systems improve the efficiency of rural transit and other rural fleets, such as snowplows and law enforcement vehicles, through advanced vehicle tracking and on-board equipment monitoring systems. S Commercial Vehicles use satellites, computers and communications systems to manage the movement and logistics of commercial vehicles, and locate vehicles during emergencies and breakdowns.
Regardless of the type and combination of TSM or ITS elements used, there is general consensus that the most successful programs have four essential elements. First, there is extensive cooperation between various political jurisdictions, non-profit agencies and the private sector. Second, they employ integrated technological infrastructure at the appropriate geographic level. Third, TSM and ITS have the capability to build upon and
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evolve user services, technology applications and institutional relationships. Finally, TSM and ITS devices must be properly maintained.
3.0 EXISTING YORK REGION POLICIES, PROGRAMS & PRACTICES
The York Region Official Plan includes provisions for the development of HOV lanes as part of the regional transportation system and in support of a rapid transit network. To further this direction, the Region completed an HOV/Rapid Transit study in 1995. The HOV/Rapid Transit study confirms that major investment in HOV and rapid transit facilities is required if York Region is to achieve its Official Plan development goals and a 33% transit modal split during peak periods. Rapid transit facilities are proposed in major corridors with high transit volumes, with HOV lanes that accommodate buses and vehicles with 2+ and 3+ occupants in less heavily used corridors. An early start to the HOV/rapid transit program is recommended to encourage transit-oriented development and provide the initial foundation for developing the HOV/rapid transit network.
The recommended network is designed to be implemented in stages to build demand, limit risk, and keep annual capital expenditures consistent with the estimates in the Region’s Growth Management Study. The study provides a four-stage implementation program that is summarized in Table 1. To date, only one of the recommended elements from the HOV/Rapid Transit study has been implemented, that being the HOV lanes on Yonge Street between Steeles Avenue and Clark Avenue in Thornhill.
The Region of York has a centralized traffic control system (CTCS) to provide computerized monitoring and command functions to all traffic signals that are under Regional control. There are currently over 500 traffic signals on roads within the Region, over 400 of which are under CTCS control, with more signals being added to the system on a daily basis. The local municipalities have fewer than 100 signals within their jurisdictions. King, East Gwillimbury and Georgina have no traffic signals on their local streets, while Newmarket has transferred authority for the operation and maintenance of their signals to the Region. The remaining five local municipalities retain control over all traffic signals within their community except for the Town of Markham, which has delegated authority to the Region for three signals which are within close proximity to Regional roads. Finally, the Region also controls all Ministry of Transportation signals within the Region, although MTO retains jurisdiction over the intersection, and has the ultimate authority over phasing and timing.
The Region’s CTCS has been in operation for just over four years and is staffed with eight individuals who are responsible for data collection, operations, analysis, supervision and management. The system is “distributed” insofar as the control algorithms are native to the local controller. The CTCS does not monitor every step in the cycle, but polls the intersection every five minutes to retrieve information that the watchdog feature adds to an internal log within the controller. Various alarm states are recorded such as stuck pushbuttons, emergency vehicle pre-emptions and conflict situations which place the signal in “flash” mode. Communication is achieved via leased communication lines from Bell Canada for approximately 100 signals, plus 300 spread
York Region Policy Paper No. 2 Transportation Master Plan Transportation System Management & Intelligent Transportation Systems Page 4 of 8 spectrum radio links. The vast majority of signals operate in a semi-actuated mode, and the balance are fully actuated, which are typically found at major intersections.
Table 1: York Region HOV/Rapid Transit Strategy Implementation Program Timing Component Element Near HOV Lanes • Highway 7 – Highway 400 to 404 Term • Jane Street – Steeles Avenue to Highway 7 • Dufferin Street – Steeles Avenue to Highway 7 • Yonge Street – Steeles Avenue to Highway 7 • Don Mills Road/Leslie Street – Steeles Avenue to Highway 7 Busway • Highway 7/407 Corridor Busway – construct selected initial stations and sections Rapid Transit • interim exclusive right-of-way to the Yonge Subway Precursor • interim exclusive right-of-way to the Spadina Subway Medium HOV Lanes • Highway 7 – Highway 50 to Highway 400, Highway 404 to Term McCowan • Rutherford Road – Weston Road to Highway 404 • Dufferin Street – Highway 7 to Rutherford Road • Bathurst Street – Steeles Avenue to Major Mackenzie Drive • Yonge Street – Highway 7 to Elgin Mills Road • Warden Avenue – Steeles Avenue to Highway 7 • McCowan Road – Steeles Avenue to Highway 7 • Steeles Avenue – encourage Toronto to implement east of McCowan Road to Durham Region GO Transit • Bradford line – encourage GO Transit to implement full service • Richmond Hill line - encourage GO Transit to implement full service • Stouffville line - encourage GO Transit to implement full service Busway • Highway 7/407 Busway – construct additional busway stations and related sections • Yonge Busway – construct selected initial busway stations and related stations Long HOV Lanes • Highway 27 – Steeles Avenue to Highway 7 Term • Weston Road – Steeles Avenue to Rutherford Road • Jane Street – Highway 7 to 16th Avenue • Keele Street – Steeles Avenue to Major Mackenzie Drive • Yonge Street – Elgin Mills Road to Davis Drive • Leslie Street – Highway 7 to 16th Avenue • Warden Avenue – Highway 7 to 16th Avenue • McCowan Road – Steeles Avenue to 16th Avenue • Highway 48 – Steeles Avenue to 16th Avenue • New Markham Bypass – Steeles Avenue to 16th Avenue • Steeles Avenue – encourage Toronto to complete from Highway 50 to McCowan Road • Highway 400 – support province’s implementation Busway • Yonge Busway – construct Langstaff to Elgin Mills section • Highway 7/407 Corridor Busway – complete linked busway Subway • Yonge Subway – enter into agreement with Toronto to extend to Highway 7 • Spadina Subway – enter into agreement with Toronto to extend to Highway 7 Ultimate Busway • Highway 7/407 corridor Busway – extension of busway • Yonge Street Busway – completion of busway Subway • Spadina Subway – extension from Jane Street/Highway 7 to Weston Road/Highway 7
York Region Policy Paper No. 2 Transportation Master Plan Transportation System Management & Intelligent Transportation Systems Page 5 of 8
Time-based co-ordination is provided among the 400 signals that are currently under CTCS control. Traffic signal coordination is provided from the central computer through the transfer of necessary parameters to the controlling field equipment as required, and a daily synchronization of all traffic signal time clocks to the computer. Data is collected through the detector network, in particular through system loops, which are imbedded in numerous major arterials. In addition, two closed circuit television (CCTV) cameras are located at Highway 7 and Weston Road to provide monitoring capability of this intersection by staff at the Control Centre. Signal pre-emption is provided through the use of an OPTICOM system that gives fire vehicles priority over conflicting traffic at most signalized intersections throughout the Region.
4.0 EXPERIENCES OF OTHER JURISDICTIONS
TSM and ITS policies, programs and practices vary across political jurisdictions. The following provides a brief overview of TSM and ITS methods being employed in the Greater Toronto Area and other selected jurisdictions.
There are two freeway traffic management systems operating within the GTA. The City of Toronto operates one on the Don Valley Parkway and the Gardiner Expressway, and the Ministry of Transportation operates COMPASS on parts of the 400 series highways. These systems include extensive detectorization, CCTV and computerized changeable message signs to inform drivers of downstream traffic conditions. On the QEW, the system provides ramp metering to control access to the eastbound expressway through Mississauga. Collectively, this provides enhanced traffic flow, reduced delay and improved response to collisions and other incidents.
Numerous major municipalities across the GTA and throughout Ontario have computerized traffic signal systems. These include the cities of Toronto, Brampton and Mississauga, plus the regions of Ottawa-Carleton, Durham, Sudbury and Waterloo to name a few.
The Regional Municipality of Ottawa-Carleton also operates an internet site (www/rmoc.on.ca/travelwise) as a community information ITS tool. The website provides a one stop, on-line source for complete information on transportation methods such as walking, cycling, carpooling and public transit. The site is being expanded with an on-line cycling map, information on workplace commuting and walk to school information.
5.0 TSM AND ITS OPTIONS AND IMPLICATIONS
There are several TSM and ITS options that York Region could pursue. Table 2 summarizes the advantages and disadvantages of these options.
York Region Policy Paper No. 2 Transportation Master Plan Transportation System Management & Intelligent Transportation Systems Page 6 of 8
Table 2: TSM and ITS Options for York Region Option Advantages Disadvantages Arterial High-Occupancy Vehicle (HOV) lanes Preferential treatment for HOV 2+ and 3+ on Adds to roadway congestion for trucks, and is designated arterials very difficult to enforce Signal pre-emption for emergency and transit Reduces delay for fire vehicles and buses at Signal priority for buses is capital intensive, vehicles traffic signals and cannot be effectively implemented until a Regional transit system is in place Freeway Management System Reduces delay and congestion on freeway Requires a complementary system on the network parallel arterial network to maximize effectiveness Regional Multi-modal Traveller Information Reduces both passenger and motorist delay Very capital intensive, and requires broad System on transit and arterial road network. cooperation among a variety of agencies and Especially effective for visitors to the vehicle manufacturers Region, or those unfamiliar with the road network Roadway Operation and Maintenance Enhances response to severe weather Moderately capital intensive, and other Technologies emergencies sources of information can be utilized such as the Weather Network Traffic Responsive Area Control (TR1) Provides significant improvements to traffic Requires software and moderate capital and operations on arterial roads that are parallel maintenance expenditures for detectorization to a freeway Traffic Responsive Intersection Control (TR2) Provides substantial enhancements to key Requires software and moderate capital and signalized intersections maintenance expenditures for detectorization Assumption of all Traffic Signal Control Functions Provides effective co-ordination of all signal Requires co-operation among all local under York Region operations under one responsible authorities and the Region of York. Initially, jurisdiction there may be a perceived loss of local autonomy. Additional capital and maintenance costs to be assumed by the Region, but overall there would be a net saving. Traffic Adaptive Control (SCOOT) Provides area wide responsive control to all Requires significant software and computer selected intersections under central control hardware plus high capital and maintenance expenditures for detectorization and other field equipment.
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6.0 DIRECTIONS FOR CHANGE
As noted in the previous Table 2, there are a number of options that the Region of York can pursue. A plan is in place for the HOV network, and this should be implemented as per the proposed schedule. The Region already has an OPTICOM system in place to provide emergency vehicle pre-emption for fire trucks. Technology similar to that currently being used in the City of Toronto could be implemented for buses in the Region, but this should not be undertaken at least until a Region wide transit system is in place. Similarly, the MTO COMPASS project can and should be extended into the Region on Highways 400, 404 and 407, and ultimately the 427 extension. Since the Region has no freeways directly under its jurisdiction, there is no advantage to developing or implementing any form of FTMS. By simply taking advantage of Provincial expertise in this area, the Region can reap the benefits of FTMS without incurring the significant capital and maintenance costs associated with a system of this complexity.
The options that should be pursued, however, are the implementation of Traffic Responsive Area (TR1) and Critical Intersection (TR2) control along freeway corridors and key intersections throughout the Region. This would enable the CTCS to respond to freeway incidents and unforeseen changes in traffic patterns in a dynamic and effective manner. A move towards the consolidation of all traffic signals under Regional control is also a desirable goal, if effective co-ordination of signal operations is to become a reality. The implementation of Traffic Adaptive control should be a longer-term initiative, once TR1 and TR2 control are well established. As much as possible, the Region should learn from the efforts of other jurisdictions in the GTA, especially the City of Toronto. This will preclude the need to develop and test any new technology that has already been well researched elsewhere. This will minimize costs and speed the installation of enhanced control algorithms to the benefit of Regional taxpayers and the travelling public.
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7.0 BIBLIOGRAPHY
Cross, Gregory. 2000. “Rural ITS: Northern Shenandoah Valley Model Deployment Initiative”, ITS World Magazine. Volume 5, Number 1. City of Toronto, 2000. A Transportation Vision for the City of Toronto Official Plan. Greater Toronto Service Board, 2000. Removing Roadblocks to Continued Economic Prosperity for the Greater Toronto Area, Ontario and Canada. Gregorski, Tim. 2000. “Forecast Calls for Steady Traffic”, ITS World Magazine. Volume 5, Number 1. Kallender, Paul. 1998. “Priority Proven”, ITS International. Issue 19. McManus, Sean. 1998. “Battle of the Bulletins”, ITS International. Issue 19. Mitchell, Dennis J. 2000. “Their Brother’s Keeper”, ITS World Magazine. Volume 5, Number 3. Ontario Ministry of Transportation, 1996. Transportation Infrastructure: Expenditure Trends and Preservation Requirements. Ontario Ministry of Transportation, 1997. TDM Business Case Review. Ontario Ministry of Transportation, 1999. Transportation Planning for the Greater Toronto Area and Hamilton Wentworth. Region of Durham, 2000. Working Paper #2: Vision, Policy and Issues. Region of Peel, 1995. Summary of the Peel HOV and Transit Priority Studies. Region of York (McCormick Rankin), 1995. York Region HVO/Rapid Transit Study. Region of York, 1999. Official Plan (Office Consolidation). Transportation Association of Canada, 1993. A New Vision for Urban Transportation. U.S. Department of Transportation, 1998. ITS Standards. U.S. Department of Transportation, 1998. ITS Standards. U.S. Department of Transportation, 1998. Metropolitan ITS. U.S. Department of Transportation, 1998. Rural ITS. U.S. Department of Transportation, 1998. The National ITS Architecture.
York Region Policy Paper No. 2 Transportation Master Plan Transportation System Management & Intelligent Transportation Systems TRANSPORTATION MASTER PLAN
Policy Paper No. 3
TRANSPORTATION DEMAND MANAGEMENT & TELECOMMUTING
For Discussion Purposes Only
October 2000 TABLE OF CONTENTS
1.0 INTRODUCTION & BACKGROUND...... 1
2.0 CURRENT ISSUES REGARDING TDM...... 1
2.1 Transportation Demand Management & Telecommuting...... 1 2.2 TDM in the GTA ...... 2 2.3 TDM in York Region ...... 3
3.0 YORK REGION OFFICIAL PLAN POLICIES...... 4
4.0 RELEVANT EXPERIENCE IN TDM & TELECOMMUTING ...... 6
4.1 Portland, Oregon – Commuter Choice...... 6 4.2 Seattle, Washington – Riderlink...... 6 4.3 Greater Vancouver Regional District – Livable Region Strategic Plan ...... 7 4.4 Region of Ottawa-Carleton and Nortel Networks – Green Commute ...... 7 4.5 Europe and Toronto – Car Sharing...... 7 4.6 Video Conferencing and Telework...... 8
5.0 POLICY DIRECTIONS FOR TDM & TELECOMMUTING IN YORK REGION...... 9
5.1 Integration of Transportation & Land Use Planning...... 9 5.2 Reducing Automobile Use & Dependency ...... 10
6.0 MOST PROMISING DIRECTIONS FOR CHANGE ...... 12
6.1 Improved Public Transit...... 13 6.2 Alternative Work Hours and Telecommuting...... 13 6.3 Ridesharing ...... 13 6.4 Parking Management ...... 14 6.5 Land Use Planning ...... 14
7.0 CONCLUSION ...... 14
8.0 BIBLIOGRAPHY...... 15
Prepared By: Cansult Limited October 2000
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1.0 INTRODUCTION & BACKGROUND
Transportation Demand Management is a concept useful in controlling growth in travel demand. With current peak period transportation trends in York Region and the Greater Toronto Area as a whole largely focused on private automobile use, measures to decrease the number of vehicles on the road, balance traffic flows and encourage travel during the off-peak periods are essential. Strategies such as transportation demand management (TDM) and telecommuting are viable solutions towards reducing peak period traffic congestion and maximizing the use of the existing transportation system.
2.0 CURRENT ISSUES REGARDING TDM
The following section provides an overview of current trends and issues in transportation demand management.
2.1 TRANSPORTATION DEMAND MANAGEMENT & TELECOMMUTING Transportation demand management and telecommuting are two measures that aim to influence the demand for use of the transportation system of a region. Both TDM and telecommuting are measures to control the trend of high traffic volumes and traffic congestion ensnarling the road network. TDM is becoming an increasing presence in transportation plans for regions across North America. Past initiatives for transportation plans have focused upon increasing the physical capacity of the transportation system to meet the existing and forecast future travel demand. The inclusion of TDM into regional transportation plans takes an opposing perspective. TDM points to an approach which aims to manage and shape the future demand for use of the transportation system in order to improve the efficiency of existing transportation facilities, address financial and physical constraints and reduce energy consumption and the emission of pollutants into the air (TDM Technical Overview, 1993, p.1). In effect, TDM attempts to alter travel mode choice, frequency of travel and time of travel to ease congestion occurring within the transportation network, by providing incentives to use alternative forms of transportation and disincentives to decrease the number of single occupancy vehicles (SOVs) on the road. TDM also aims to alter the timing of trips, in order to spread out the concentration of peak period trips over a longer period, and thereby taking pressure off existing transportation system infrastructure during peak periods. Since the greatest demand on the transportation system generally occurs during the morning and evening peak periods, largely in the form of commute trips, TDM strategies typically are directed at managing journey-to-work trips (TDM Technical Overview, 1993, p.1).
TDM is a strategy that aims to modify travel demand and maximize the ability of the transportation system to efficiently move both people and goods, with a focus on commuting for work purposes. The main objective is to improve the operation of the transportation system without requiring increases on the supply side, such as infrastructure or service expansion. Hence, the focus is to shift travel demand by the creation of policies to encourage a reduction in auto dependency and the number of vehicles travelling on the road network and spread out peak period travel. With the principle of planning for the movement of people and goods rather than vehicles, TDM aims to provide alternative modes of transportation for commuting purposes, such as use of the public transit system, ridesharing, cycling and walking. TDM policies and
York Region Policy Paper No. 3 Transportation Master Plan Transportation Demand Management & Telecommuting Page 2 of 15 programs benefit regional and local governments as reduced reliance on the private automobile decreases the demand on the road network, and as such, reduces or defers the associated infrastructure construction and maintenance costs. TDM is often regarded in relation to transportation system management (TSM) initiatives intended to maximize the throughput of the road network, which may include intersection improvements and optimizing traffic signal timing.
Telecommuting, also known as teleworking, is a relatively new direction for providing alternative work schedules for employees. Telecommuting is one form of TDM that involves employees working from home or at an employer’s regional satellite work centre, through the use of technology providing remote access to the central office. Telecommuting permits flexibility for employees as the time required for them to be present in the office is often reduced, perhaps only for meetings. Telecommuting can range from one day per week working away from the office to the entire week, however telecommuters on average telework on one or two days per week (TDM Technical Overview, 1993, p.34). Telecommuting is advantageous for managing transportation demand as it serves to reduce the number of automobiles on the road network during peak periods on a daily basis.
TDM measures originate from the energy crisis of the 1970s, where many suburban areas were almost entirely dependent on the private automobile for travel, transit services were not widespread, and there was minimal coordination between transit planning and land use planning (TDM Technical Overview, 1993, p.1). Alternative modes of travel were necessary under the threat of an energy scarcity, and as such TDM strategies were initiated. TDM strategies have persisted over time, and are now referred to as essential implements to sustain the existing transportation system. The main goals of TDM point to improvements in the transportation network and the environment, and include the following: S more effective use of transportation facilities and services; S to mitigate traffic congestion through: S changing the modal split to reduce automobile modal share; S increasing automobile occupancy; and S shifting travel out of peak periods; S to increase the capacity to move people without increasing vehicular capacity; S to reduce energy consumption; and S to improve air quality (TDM Technical Overview, 1993, p.2 and p.6).
2.2 TDM IN THE GTA The implementation of TDM measures and the promotion of telecommuting are integral to maintaining the road network and transit system in the Greater Toronto Area (GTA). As demand for efficient travel on the Region’s road network increases, a system needs to be initiated to effectively manage the movement of people. Forecasts for the GTA estimate that its population will increase from nearly 5 million in 1996 to approximately 7 million by 2021. Similarly, employment in the GTA is forecast to increase from 2.3 million in 1996 to approximately 3.8 million workers in 2021 (Toronto Plan Report, 2000). York Region forecasts suggest that the population will increase from 611,000 in 1996 to approximately 1.3 million in 2026, and employment is forecast to increase from 290,000 in 1996 to nearly 700,000 in 2026 (York Region Population, Households and Employment Forecasts, 1996-2026, 2000, p.4).
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Between 1986 and 1996, daily passenger travel in the GTA increased from 7.3 million to 9.1 million person-trips on a typical weekday, an increase of approximately 24%. During this period the morning and evening rush hour volumes increased by 19 and 22% respectively. It is forecast that over the next quarter century in the GTA, daily passenger travel will further increase by 55% to 14.1 million person-trips per day, whereby the morning and evening peak period volumes will see an increase in traffic of 49 and 51% respectively (Removing Roadblocks – Congestion and Economic Competitiveness, 2000, p.11). Such further increases in traffic volume during peak periods will result in slower travel speeds, longer travel time and amplification of peak periods, signaling a dire need for TDM strategies to improve the capacity of the existing transportation network.
Based on the Metro Toronto TDM Technical Overview, the City of Toronto Official Plan sets out policies with respect to encouraging the use of TDM strategies in an attempt to make more efficient use of the City’s existing transportation system and reduce private automobile use. Several policies related to automobile usage, public transit and city parking have been outlined, which can provide support to TDM strategies. These include the following (City of Toronto Official Plan, 1994): S to support the objective of reducing overall use of the private automobile from present-day levels and take appropriate measures towards this end as acceptable strategies are developed; S to support measures to increase the capacity, enhance the attractiveness and improve the operating efficiency of surface transit routes through: S reserved transit lanes; S priority for transit vehicles at traffic signals; S improved fare collection methods; S improved access to and shelter at transit stops; S premium and express transit service; and S additional routes and connections; S to encourage greater fare and service integration between the TTC and GO Transit systems and support a more coordinated approach to transit services at a regional level; S to promote the development of additional GO stations; S to support traffic management measures designed to make better and more efficient use of the existing City roads aimed primarily to benefit transit riders, cyclists and pedestrians; S to promote more efficient use of the private automobile by supporting measures to increase automobile occupancy levels such as promoting ride sharing and reserving the use of traffic lanes for HOVs; and S within the central area, emphasis will be placed on the provision of adequate short- term parking spaces while recognizing the need for a minimal level of all-day parking facilities to accommodate essential parking demand.
Other supportive measures include increased enforcement with respect to illegal parking and stopping on bus routes (which hinder bus movements) and the provision of additional parking facilities at subway terminals.
2.3 TDM IN YORK REGION Current trends in land and community development in the GTA have led to urban sprawl in the form of low-density suburbanization on the fringe of the urbanized area. Many
York Region Policy Paper No. 3 Transportation Master Plan Transportation Demand Management & Telecommuting Page 4 of 15 employees within the suburban GTA commute into the City of Toronto, the Toronto Central Business District (CBD) or across regional boundaries. Residents of York Region commute longer distances to work, drive their cars more often and use public transit, bicycle and walk less than the average Ontario resident. The 1996 Census cites the mode of transportation used for commute purposes in York Region as driving (81%), passenger (7%), public transit (9%), walking (2%), bicycling (0%) and other methods (1%) (Our Environment Our Home, 2000, pp.2-17,p.2-18). Auto dependency is largely due to low housing densities rendering journey-to-work on public transit inefficient. In addition, many people do not live and work in the same municipality (poor live-work relationships) and as such lengthy automobile trips are more often than not the most viable option for travelling across boundaries. However, it is recognized that urban sprawl is typically the first stage in urban development. As development progresses, higher densities and an increased mix of uses are likely to prevail – the ensuing transportation benefits will thus mitigate the initial transportation impacts of urban sprawl.
With forecasts for significant increases in population and employment throughout York Region and the GTA as a whole, the current trend towards the use of SOV trips is likely to grow accordingly. The number of motor vehicles and the number of trips made continue to rise in York Region, with traffic volumes increasing at a rate slightly higher than the rate of population and employment growth (Our Environment Our Home, 2000, p.2-17). As such, alternatives to private automobile use for commuting purposes are essential, as are altering the demand for travel on the GTA’s transportation network. Increased pressure on the road network may lead to uncontrollable traffic congestion if left unchecked and escalating amounts of vehicle emissions contributing to air pollution. The City of Toronto has implemented HOV lanes on high volume arterial roads, such as Yonge Street between the Finch subway terminal and Steeles Avenue, and Allen Road between Highway 401 and Finch Avenue, as well as many others, to encourage greater use of transit and ridesharing. A comprehensive transit system also supports efficient travel throughout the City. York Region needs to implement a variety of the initiatives outlined as TDM measures to alter the modal split, encourage alternative travel options, and ensure manageable travel demand on an efficient and effective transportation network.
3.0 YORK REGION OFFICIAL PLAN POLICIES
At present, the York Region Official Plan does not specifically address policies and programs to promote TDM and telecommuting. However, it does recognize the importance of public transit, walking and cycling as tools to manage transportation demand, and identifies the need for a coordinated road network and transit system to provide high-capacity inter-municipal service. Objectives in the Official Plan that pertain to the transportation system and that are relevant to TDM include the following (York Region Official Plan, 1999, p.64, p.68 and p.70): S to plan and protect street and road corridors so that they can be developed in a manner that is supportive of the future urban and rural structure of York Region and that can accommodate future transportation demands; S to ensure that roads are improved in a manner that is supportive of all modes of transportation including walking, cycling, automobile, transit and truck and that minimizes conflicts between these different modes;
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S to increase the total person-carrying and goods-carrying capability of the regional street and road network in a manner that is consistent with the overall goals and objectives of this plan; S to provide transit service that is convenient, accessible and equitable to all residents of York; and S to promote and facilitate walking, cycling and trails.
Numerous policies of Council indicate the importance of TDM and its associated measures to promote effectively managed transportation in the Region. These include: S to continue to improve the York Region road network subject to the following: S that all road improvements take into account the needs and requirements of all forms of transportation including automobiles, transit vehicles, trucks, bicycles and pedestrians; and S that in identified centres and corridors, priority be given to the needs of transit, pedestrians and cyclists and the integration of adjacent land uses to promote these forms of transportation; S mid-concession block collector roads are implemented east-west and north-south in all new urban developments; such continuous collector roads are required to not only serve automobile traffic in the local areas but also to serve efficient and effective transit systems; S to identify and implement a network of HOV lanes on regional roads and other roads as appropriate (this network should be designed to integrate with networks in the City of Toronto and other regions); S to develop a fully coordinated public transit system that links the major residential, employment and community activity areas within York Region and makes suitable connections with transit systems in the City of Toronto and adjacent area regions; S to plan communities on the basis of significantly increasing public use of transit, where the 30 year target will be for one third of all peak period trips by transit; S to achieve higher transit usage by supporting improvements in service, convenient access and good urban design, including: S minimizing walking distance to anticipated transit stops through the provision of walkways and more direct road patterns, where in urban areas the distance to a transit stop should be no more than 500 metres for 90% of residents and no more than 200 metres for 50% of residents; S locating medium and higher density urban development adjacent to transit- intensive urban arterial roads; S providing for and promoting parking and drop off facilities for commuters in appropriate locations and in close proximity to commuter trip origins; and S providing transfer facilities at appropriate locations; S to cooperate with area municipalities, GO Transit, the TTC, the Ministry of Transportation and adjacent municipalities in the planning, coordination, integration and operation of existing and new transit services; S to support a consistent and equitable transit fare strategy throughout York Region and to ensure that this fare structure is integrated with transit services in adjacent regions and with GO Transit; S to provide preferential treatment for transit on regional roads, including construction of HOV lanes, reserved bus lanes and bus priorities at traffic signals; and S to ensure the integration of bicycle path and walkway systems into the design of transportation facilities including protected bicycle storage areas at stations, places of employment and major community, institutional, educational, cultural and shopping locations.
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4.0 RELEVANT EXPERIENCE IN TDM & TELECOMMUTING
Throughout Europe, TDM measures to control urban traffic congestion have been in place for many years, including carpooling and car sharing programs, road pricing and comprehensive rapid transit systems. Many North American cities have implemented innovative systems for managing urban growth and travel demand, most notably, Portland, Seattle, Vancouver and Toronto. Telecommuting is a concept of TDM that has gained substantial credit in parts of the United States and Canada and implemented in part to reduce the demand for travel on area road networks. Examples of programs and policies that have acted in part to efficiently manage travel demand in other cities can help direct policy making for York Region to cope with increasing travel demand forecast for the 21st century.
4.1 PORTLAND, OREGON – COMMUTER CHOICE Employer induced benefits towards more efficient commuter choice options is a program presently in place for businesses in the City of Portland. Several options are available to area employers to promote TDM measures and encourage their employees to use alternative modes of transportation to SOV use. An employer may provide up to the entire annual amount of a public transit pass on Portland’s Tri-Met or CTRAN transit service, tax-free to employees; in effect this will also lower federal and state income taxes paid by the employer. As such, in the Portland area, 400 employers offer reduced cost transit passes to over 150,000 employees. A program entitled “PassPort” allows companies to provide free transit passes based on a cost related to current ridership and transit pass revenue at the worksite. Other programs are in place, such as an “Employee-Paid Pre-tax Benefit Option”. If employers cannot cover the costs of transit pass benefits, they may set up a payroll program and permit employees to exchange part of their gross income for transit passes. Employees pay for the benefit with pre-tax dollars thereby saving federal and state income taxes. Another practice implemented to market Tri-Met or CTRAN use is a “Parking Cash Out” program. In effect this program allows employees to forego the free or subsidized parking provided by employers and cash out the value of the parking benefit. The value of the parking benefit is subject to taxes, however, if up to $65 of the value is converted to a transit pass, the amount converted will not be taxed. In addition to the promotion of transit use, the City of Portland also supports organized car sharing and carpooling programs. Car sharing and carpooling programs are promoted to save the average resident up to $2400 per year related to the costs of automobile ownership, and to provide such benefits as reduced rates at downtown Portland parking facilities and parking meters (City of Portland, Office of Transportation, www.city.portland.or.us).
4.2 SEATTLE, WASHINGTON – RIDERLINK Riderlink, a joint venture between King County Metro Transit and the Overlake Transportation Management Association, an organization of a variety of suburban employers (including Microsoft) provides 15,000 employees of member companies information regarding a broad range of travel options. Information provided by this initiative includes: bus routes and schedules, ridesharing services, carpool matching assistance and real-time freeway congestion updates and road construction reports generated by the Washington State Department of Transportation. This transportation system information is available at touch-screen kiosks at employer sites as well as internet web sites (Orski, 1995, p.58).
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4.3 GREATER VANCOUVER REGIONAL DISTRICT – LIVABLE REGION STRATEGIC PLAN The Greater Vancouver Regional District (GVRD) has recognized the important link between transportation and land use in its 1996 “Livable Region Strategic Plan” which includes measures aimed at containing urban sprawl and the promotion of transportation alternatives. This Plan was generated in part to influence travel demand and behaviour of the 1.8 million residents living within the Region’s 21 municipalities. The Plan recommends: S protecting a “green zone” to provide an urban growth boundary; S building complete communities that support a better distribution of jobs and housing opportunities; and S increasing transportation choice – to manage growth and development to reduce travel distances, and emphasize transit, cycling and walking.
The Plan proposes a $1.43 billion program of capital investments over the next five years. TransLink, the Greater Vancouver Transportation Authority (GVTA) is looking at alternative sources of revenue to pay for these projects, such as vehicle levies, additional provincial fuel taxes and system-wide electronic tolling on major roads and bridges (Henry, 2000, pp.1-3).
The GVTA is looking at another initiative related to TDM. A “Station Car” pilot program is in the works, to locate a number of cars at mass transit stations. These cars are designed to move transit users to and from well-served transit corridors to low density areas of the region that are difficult to serve with conventional transit, including residential areas and employment districts. Station cars can be shared throughout the day and over peak periods by a number of transit commuters. In addition, station vehicles that are energy efficient will be used, providing a more sustainable option for travel.
4.4 REGION OF OTTAWA-CARLETON AND NORTEL NETWORKS – GREEN COMMUTE In Spring 1999, the Region of Ottawa-Carleton in coordination with Nortel Networks implemented a pilot program as part of a “Green Commute” strategy to promote alternative forms of transportation to reduce air pollution and influence travel demand. As the Region’s largest private-sector employer, Nortel Networks involvement was integral to shape TDM efforts. As a requirement of the site approval process for an expanded operations facility, a TDM strategy was included, with intent to promote alternative methods of transportation for Nortel employees through making available a variety of commuting options. Nortel provided a number of tools for commuting options, including a new transit hub with routing changes, expanded or enhanced bicycle and walking trails, a carpooling parking garage and a web-based carpool matching program (Getting There, 2000). In its second year, the program has already increased the proportion of non-drivers at Nortel’s Ottawa-Carleton area offices to one in four employees from one in five employees (Noxon, 2000, p.21).
4.5 EUROPE AND TORONTO – CAR SHARING Extensive car sharing networks have emerged across Europe, involving more than 200 organizations including 15,000 members. Originally initiated in Switzerland, European car share systems offer such services as guaranteed delivery of a vehicle within 15
York Region Policy Paper No. 3 Transportation Master Plan Transportation Demand Management & Telecommuting Page 8 of 15 minutes, 24-hour reservations, discounts on urban and inter-urban transit service and reduced taxi rates. Membership in one city allows access to car sharing facilities in over 70 other cities. The first and largest car share program, Berlin’s “Stattauto” has had an annual growth rate in membership of over 50%. After joining, 54% of the participants sold their own car. In the Netherlands, car share participants reduced their private automobile usage by approximately 30% (Smog: Make It or Break It, 1998, 19).
Established in 1998, AutoShare is a car sharing service initiated in the City of Toronto that is largely used by its members for travel within the GTA. In August 2000 AutoShare had 300 members and 22 vehicles to its name. Members have 24-hour access to a fleet of cars stationed at locations around the City of Toronto. AutoShare handles all administration, financing, insurance, maintenance and gas for the automobiles, while the members pay a $500 one-time membership fee, refundable if members wish to leave, and a very small fee for application processing and key deposit. In addition, three “plans” are available based on frequency of automobile use where a monthly fee and fee per trip kilometre is charged. Longer distance trips are also available where cars can be borrowed for weekend or week long periods at slightly higher rates. Members receive a monthly itemized bill for car use, similar to a utility bill, and receive discounts from AutoShare’s partner companies. Eventually, members of AutoShare will receive discounts when using public transit and other means of transportation in the GTA. AutoShare is promoted as a smart alternative to owning a car; it is less expensive if one travels less than 12,000 kilometres per year, and the program works well for those who do not require a vehicle for daily use. The program is touted as a means to reduce pollution and congestion from over-reliance on the private automobile, as every AutoShare automobile replaces 5-6 private automobile trips on the City’s roads. Future directions for AutoShare include the addition of hybrids, alternative fuel and electric vehicles to its fleet. A car reservation system with telephone and internet access is under development, and eventually, smart cards and on-board computers will make AutoShare even more efficient (www.autoshare.com).
4.6 VIDEO CONFERENCING AND TELEWORK British Columbia’s Ministry of Transportation and Highways has implemented a video conferencing network for Ministry staff as an initiative to reduce air pollution, car travel and traffic congestion. This initiative served to reduce the amount of time employees were required to physically be at the office, and encouraged work at home, or telecommuting.
Neighbourhood telework centres have been set up in Chula Vista, California with all of the necessary office and telecommunications equipment and on-site administrators, allowing residents of the neighbourhood to telecommute if permitted by their employer. With neighbourhood locations, residents can reach the telework centre by other means of transportation than the private automobile. Various incentives to walk or bike to the telework centres are provided and supplemented with a ‘zero-emission shuttle vehicle’ to further curtail the need for telecommuters to drive their vehicles to work for the day (Smog: Make It or Break It, 1998, 19).
The above examples of TDM strategies employed by other municipalities across North America and Europe, illustrate the importance of controlling traffic congestion and managing travel demand. Policies and programs targeted at reducing private automobile use have attempted to redirect travel demand to higher occupancy modes of
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5.0 POLICY DIRECTIONS FOR TDM & TELECOMMUTING IN YORK REGION
The York Region HOV/Rapid Transit Study prepared in 1995 by McCormick Rankin and Delcan outlined a series of policies and complementary initiatives that are required to support an HOV and rapid transit network in York Region in both the short and long terms. Several of these policies relate to TDM, in that they provide for innovative solutions to demand management. Supporting policies directed at this result include: S develop a Regional strategy or contribute to a GTA plan for demand management including a ride sharing system; and S enact policies to promote transit supportive land use and a pedestrian friendly environment at the regional and local municipal levels.
Transportation planning documents and reports produced for York Region and the GTA as a whole emphasize the need for TDM strategies to influence travel behaviour and demand in the region. A myriad of tools may be implemented to reduce the need for expansion of the existing transportation network. Growth management is essential to create alternatives to SOV use in York Region, which is forecast to double its transportation demand on the road network in peak periods over 25 years. York Region and area municipalities are working towards a Growth Management Strategy to ensure controlled and defined areas for growth (Refining the Region’s Growth Management Strategy, 1999, p.4).
5.1 INTEGRATION OF TRANSPORTATION & LAND USE PLANNING Land use planning is pivotal to shaping travel demand and behaviour, as it helps to achieve a better directional balance for transportation facilities. The majority of the communities developed in York Region between the 1970s and the present have been planned with very low housing densities and rigorous land use separations, where convenience retail, commercial, employment and institutional land uses have been separated from residential areas. In the very essence of low density development, pedestrian activity, cycling and transit use is discouraged. As such, private automobile commuting and shopping trips are the only viable means for residents to travel.
TDM measures can provide a better integration of transportation planning and land use planning. Higher density developments, such as Cornell in the Town of Markham, aim to create stronger live-work relations within communities and municipalities, and in effect can reduce trip generation. As such, more emphasis should be placed on the development of communities that focus on higher density land uses, such as apartment dwellings and commercial uses, and are better integrated with transit service. In addition, more comprehensive travel opportunities, such as improved transit networks, need to be explored to alter the choice of travel mode and direct travel to higher occupancy means of transportation for the many existing low density communities found in York Region. Policies included in the York Region Official Plan and the Official Plans of area municipalities attempt to encourage transit accessibility. York Region policies
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require that walkways and more direct road patterns be included in new subdivision plans to minimize the walking distance to transit stops. In urban areas the distance to a transit stop should be no more than 500 metres for 90% of all residents, and no more than 200 metres for 50% of all residents (York Region Official Plan, 1999, p.68).
5.2 REDUCING AUTOMOBILE USE & DEPENDENCY Reducing the number of automobiles on the road, decreasing the reliance on the private automobile and reducing the number of vehicles travelling at peak periods are key objectives of TDM strategies. Several methods to meet these objectives, and thus provide manageable capacity on the Region’s road network, include: improved transit, parking management, increased automobile occupancy, congestion/road pricing, flexible work hours and telecommuting.
5.2.1 Public Transit At present, the public transit system serving York Region is comprised of a number of municipal transit services (eg. TTC, Vaughan Transit, Markham Transit, Richmond Hill Transit, Newmarket Transit, Brampton Transit) in addition to GO service. However, despite this, transit service is only offered in half of the Region’s municipalities and many systems stay within their own municipal boundaries. Inter-municipal service and service that crosses the boundaries with the City of Toronto and other neighbouring Regions is essential for increasing transit ridership in York Region and enticing auto drivers out of their cars. A well integrated and coordinated GTA transit network can ensure reduced travel times for commuters who previously drove across regional and municipal boundaries, provide a more cost-effective mode of travel than the private automobile and reduce overall levels of traffic congestion (a single bus carries as many persons as approximately 30-40 automobiles). Commuter rail services provided by GO Transit may also be expanded to include extension of rail lines to reach stations in growing communities in northern sections of the Region, and expansion of services to include all- day service and extended rush hour service, which may encourage previous private automobile commuters to use GO transit for part or all of their journey-to-work trips. Expansion of commuter parking lots at transit stations can further attract commuters to use transit as part of their commute, especially if adequate parking is provided at no or a very low cost. Modification to the existing fare structure can potentially influence transit use. A price per distance travelled structure (eg. GO Transit) may be more encouraging than the present flat fee for transit use (eg. TTC). In addition, employer subsidized transit passes may encourage the use of public transit.
Transit service enhancements can further increase the attractiveness of public transit as a viable alternative to the private automobile. Automated vehicle location systems that track buses and report their position to a central control station can serve to convey real- time information to passengers such as bus schedule information and when the next bus will arrive, thus eliminating a common source or rider dissatisfaction with public transit. Transit agencies can also use such systems to identify where improvements in productivity and operations are needed. Comparable systems can also be implemented with vanpool or carpool services to further enhance their appeal (Orski, 1995, p.60).
5.2.2 Parking Management Parking management is another method that can serve to modify travel behaviour in favour of public transit, if coordinated with efficient and effective transit services. Parking availability, location and cost are significant factors in modal choice and discretionary trip
York Region Policy Paper No. 3 Transportation Master Plan Transportation Demand Management & Telecommuting Page 11 of 15 making. Many employers offer free or low-cost parking at their sites which induces employees to drive their vehicles to work. By introducing parking management policies, including pay lots and reduced parking ratios, this would optimally reduce automobile dependency, especially in the form of single occupant trips. Single occupant trips become less cost effective and as such, this will increase the relative attractiveness of other modes of travel, such as ridesharing. Preferential parking for HOVs and rideshare programs, in terms of cost and location within parking lots, can further serve to reduce SOV trips arising at a work site. Durham Region’s Mobility Study report identifies key initiatives that may be useful in creating parking management policies. These recommendations, as listed below, may be useful for implementation in York Region: S reviewing and amending the minimum/maximum parking requirements; S promoting the concept of shared-parking for mixed use developments; S identifying strategies (incentives) that reward car/vanpools at parking lots; S identifying incentives that reward parking lot operators who provide incentives/priority to car/vanpools; S identifying policies with respect to the provision and management of parking in downtown areas; and S identifying development types that can benefit from reduced parking standards.
5.2.3 Increasing Automobile Occupancy Increased automobile occupancy, facilitated by HOV lanes and ridesharing programs, is an excellent method to reduce the number of cars travelling on the road network. Ridesharing can be advocated by both the private and public sectors with the help of company and government policies and programs. Users benefit by sharing the costs for parking and vehicle operation. With the irregularity of some jobs, a “guaranteed ride home” program is useful to ensure that carpoolers will always have a free or reduced cost ride home. Increased automobile occupancy programs are most effective when supported by other strategies, such as HOV facilities and travel lanes, preferential parking, an on-site coordinator, carpool subsidies and parking pricing (Durham Mobility Study, 2000, p.21).
5.2.4 Road Pricing Road pricing is another mechanism to relieve traffic congestion on the road network and influence travel demand and behaviour. Road pricing may help to decrease the demand for road space as tolls tend to discourage single occupancy vehicle use. Increasing the cost of driving alone may cause a shift to other modes of transportation or result in increased auto occupancies, both of which are positive outcomes. Road price schedules that reflect an increase in traffic congestion during peak periods (ie. highest tolls during peak hours) can also be used to influence travel behaviour, as some motorists will seek to travel during the off-peak periods. Implemented as a user fee, road pricing can be an effective method of raising revenue for transportation or transit system improvements.
Highway 407, recently constructed in the GTA, is an example of road pricing close to home. While expansion of toll roads in York Region is not a policy that will likely be seen in the future, modification of policies for the use of Highway 407 may be useful for east- west travel in the GTA. One consideration may be to reduce or eliminate the fee for HOVs travelling on Highway 407 in peak periods in effect to improve east-west travel conditions in the GTA (Durham Mobility Study, 2000, p.23).
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5.2.5 Flexible Work Hours Flexible work hours is a method that has an effect on reducing peak period travel. Compressed work weeks, staggered hours or flextime programs are effective at shifting peak period travel demand. However, to be an effective TDM measure, care must be taken so that the introduction of flextime meets transportation objectives, and does not encourage existing transit users and ridesharers to switch to SOV trips in off-peak times. A useful method to achieve this is to offer off-peak transit fare reductions. Compressed work weeks also must be carefully thought out. With employees compressing the work week into four rather than five days, what is often found is that employees make more trips on their days off, which may actually increase the number of vehicles on the road. However, during the compressed work days, employees made fewer trips and travelled fewer miles (TDM Technical Overview, 1993, p.32). As a whole, alternative work hours do provide a reduction of peak period travel, and is especially useful when implemented by large employers in any region. The rush hour period may be lengthened but traffic congestion may also be dispersed.
5.2.6 Telecommuting Telecommuting also permits flexibility regarding the times in which employees must be present at the work site. Although telecommuting may not be suitable for all industries, with the introduction of many technological advances, such as the internet and e-mail, working from home or a satellite office has been enabled. As such, telecommuting reduces the need for employees to commute to work on a daily basis. In turn an increase in telecommuting activities will reduce traffic congestion during peak periods, and decrease the need for parking spaces at employer parking lots. Although telecommuting may reduce trip generation in terms of the number of automobiles on the road network, it also may have an effect on decreasing transit ridership for journey-to- work trips. It should be noted that telecommuting may actually increase travel to an extent. Telecommuting can allow teleworkers to move their place of residence further from the city centre, fostering urban sprawl. As such travel distances will increase on days in which employees must be present at the work site, and for discretionary travel in general (TDM Technical Overview, 1993, p.34).
6.0 MOST PROMISING DIRECTIONS FOR CHANGE
TDM strategies have been identified as a method for altering travel demand and travel behaviour. York Region and the GTA need to encourage TDM measures in order to maximize the use of the existing transportation system. Expansion of the public transit system is crucial to creating an integrated and comprehensive transit system in the Region, one which may be accessible by all. However, expansion of the road network to support current automobile volumes, ultimately leads to increased urban sprawl, creating a vicious cycle of more and more automobiles on the road, and as such, necessitating more road expansion. The main goal of TDM strategies is to reduce the number of vehicles trips and the number of vehicles on the road network. TDM measures need to be implemented in response to the York Region population and employment trends forecast for the next 25 years, to manage the demand expected for capacity on the road network. TDM measures must be offered and promoted in order to provide attractive alternatives to the current state of SOV use and traffic congestion during peak periods. The result should be that people are not “forced” out of using their automobiles, but should be glad to trade the expense and frustration of SOV trips for a more sustainable
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solution (Getting There, 2000, p.7). The following are directions that can prove most successful for such change in York Region.
6.1 IMPROVED PUBLIC TRANSIT Improved public transit systems are key to implementing an attractive alternative to SOV journey-to-work trips. A coordinated regional transit system is needed to provide an integrated and comprehensive transit network throughout York Region and to cross the boundaries of other municipalities within the GTA. Expansion of the existing GO Rail network can prove useful in altering the modal split towards transit usage – extension of rail lines and expansion of services to provide all-day two-way service on the rail lines extending into York Region can bring commuters out of their automobiles and encourage the use of a more efficient and hassle-free mode of travel. Transit-related TDM strategies focus on increasing transit ridership, improving the efficiency of existing services and identifying potential new services appropriate to the area’s traffic concerns (Getting There, 2000, p.18). The Greater Toronto Services Board (GTSB) is presently working on the creation of a regional public transportation system to cross GTA boundaries, which can serve to influence the modal split in York Region away from private automobile commuting.
Improved transit services coupled with transit incentives, such as fare by distance, reduced fares during non-peak periods and subsidized transit passes can support transit use by employees and induce SOV users to commute using alternative forms of transportation. The introduction of real time information conveyed to passengers regarding transit operation and wait times at transit stations may also be useful in creating a highly attractive and convenient public transportation system.
6.2 ALTERNATIVE WORK HOURS AND TELECOMMUTING Flexible hours and telecommuting are methods of TDM that in York Region will mainly consist of employer-based solutions. Large companies, such as Nortel Networks in the Ottawa-Carleton Region can influence travel demand of employees based on company policy and incentives. Flexible hours and telecommuting may already be in place in many businesses within York Region, however, expansion of these programs on a larger scale will need to be promoted and encouraged by public or private sector employers. Alternative work hours and telecommuting will cause lower traffic congestion on the road network at peak periods by decreasing the number of automobile trips taken during these periods. Flexible hours can serve to flatten out peaks in traffic levels on the road network, while still sustaining the demand for public transit use. Telecommuting, on the other hand, may decrease transit ridership, as previous transit users may now telework from home.
6.3 RIDESHARING Ridesharing may also be largely employer-based, where large companies and public sector employers can encourage ridesharing and provide ridesharing services to match up employees as a measure to control traffic demand. Shifting SOV to HOV use can maintain the number of commuters travelling at peak periods but can serve to decrease the number of automobiles using the road network, easing traffic congestion. When policies are implemented to promote HOV use, either by the public or private sector, the use of SOVs for commuting purposes becomes less attractive. Guaranteed ride home programs can increase the attractiveness of ridesharing as a commuting option.
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Dedicated HOV traffic lanes on busy roads can influence decisions for employees to carpool given a decrease in travel time. A GTA-wide ride matching service may be desirable to help control increasing inter-regional travel. Direction for the conversion of HOV lanes on existing lanes of arterial roads in York Region should be identified in the Regional Official Plan. HOV lane locations for implementation in York Region in both the short and long terms are outlined in the York Region HOV/Rapid Transit Study. Many routes identified for HOV use are to serve as a continuation of HOV travel lanes in the City of Toronto and neighbouring regions to complete a comprehensive, integrated HOV network for the GTA.
6.4 PARKING MANAGEMENT Other parking management strategies, such as parking pricing for new and existing commercial developments, make SOV travel unattractive for journey-to-work and discretionary trips. In addition, reduced short term parking rates decreases the amount of parking spaces available for use by commuters, often making automobile trips less feasible. As such, with less parking available and therefore less cost efficient for the majority of commuters, alternative forms of transportation will need to be explored in place of SOV commuting. Policies such as preferential parking for HOVs at work sites and at transit hubs and reduced parking fares for HOVs decreases the transportation costs associated with parking a vehicle and may discourage SOV trips.
6.5 LAND USE PLANNING Land use planning policies in the Regional and municipal Official Plans should promote site design standards that would require developments to include transit-oriented characteristics and provide for pedestrian and bicycle trails as a viable means of transportation. Mixed use developments, planned with mid-block collectors, are key to promoting transit oriented development. Zoning by-law parking requirements should ensure that appropriate minimum and maximum parking requirements for different land uses are set, as well as consideration for shared parking, in order to limit excessive free parking at work sites and other developments. Official Plan policies should also permit and promote home-based work or telecommuting opportunities within York Region as a means of travel demand management.
7.0 CONCLUSION
As Ontario’s fastest growing region faces rising traffic volumes, TDM strategies are needed in York Region to control the demand for more and more road capacity. Direction is needed to improve alternative forms of transportation in order to maintain the existing capacity of the transportation system, and therefore not incur large infrastructure costs associated with building more roads or travel lanes. Conversion of existing traffic lanes to HOV lanes, expansion of a regional public transit system and programs to promote HOV use offer the most promising route for change. Telecommuting is an innovative way to decrease the number of automobiles on the road, however its use is not widespread in York Region. In addition, improved live-work relationships are needed in order to develop more balanced directional flows of traffic during peak periods. TDM strategies can create a more sustainable transportation system, which benefits municipal and Regional governments. Reducing the demand for private automobile use reduces or defers costs to build and maintain transportation infrastructure.
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8.0 BIBLIOGRAPHY
AutoShare, www.autoshare.com.
City of Portland, Office of Transportation, www.city.portland.or.us.
City of Toronto, Toronto Plan – A Vision for the City of Toronto Official Plan, Transportation Planning, City Planning Division, Urban Development Services, April 2000.
City of Toronto, Official Plan, 1994.
Durham Mobility Study, Working Paper Number 3 – Transportation Demand Management and Transit, May 2000.
Greater Toronto Services Board, Removing Roadblocks – A Strategic Transportation Plan, January 2000.
Greater Toronto Services Board, Removing Roadblocks – Congestion and Economic Competitiveness, January 2000
Henry, Reid, “Vancouver Offers a Model for GTSB Future,” in GTA Municipal News, Wednesday, August 23, 2000, Vol. 3, No. 33, 1-3.
Malone, M.E., “Telecommuting breaks out of a jam,” in The Globe and Mail, Thursday, March 2, 2000, T6.
McCormick Rankin in Association with Delcan, York Region HOV/Rapid Transit Study, June 1995.
Metropolitan Toronto, TDM Technical Overview, Planning Department, Transportation Division, 1993.
Noxon, Geoff, “TravelWise: A New Direction for Transportation Demand Management,” in Ontario Planning Journal, May/June 2000, Vol. 15, No. 3, 20-21.
Orski, C. Kenneth, “Thinking Small: Applying ITS Technologies to TDM,” in ITE Journal, December 1995, 57-60.
University of Waterloo, 2000. Getting There: A Transportation Demand Management Assessment of the University of Waterloo Community, www.adm.uwaterloo.ca
York Region, Official Plan, 1999.
York Region, Our Environment Our Home, 2000.
York Region, York Region Population, Households and Employment Forecasts, 1996- 2026, 2000.
York Region Policy Paper No. 3 Transportation Master Plan Transportation Demand Management & Telecommuting TRANSPORTATION MASTER PLAN
Policy Paper No. 4
AIR QUALITY & THE ENVIRONMENT
For Discussion Purposes Only
October 2000 TABLE OF CONTENTS
1.0 INTRODUCTION & BACKGROUND...... 1
2.0 CURRENT ISSUES...... 1
2.1 Air Quality in the GTA...... 2 2.2 Air Quality in York Region...... 3
3.0 YORK REGION OFFICIAL PLAN POLICIES...... 4
3.1 Air Quality...... 4 3.2 Transportation Network ...... 5 3.3 Future Trends in Population, Employment and Travel ...... 6
4.0 RELEVANT EXPERIENCE IN AIR QUALITY & THE ENVIRONMENT...... 7
4.1 City of Toronto – Smog Alert Response Plan...... 7 4.2 City of Toronto – Corporate Smog Contracts...... 8 4.3 Tulsa, Oklahoma – “Ozone Alert” Days ...... 8 4.4 Paris, France – Vehicle Restrictions ...... 8 4.5 Portland, Oregon – Urban Growth Boundary ...... 8
5.0 POLICY DIRECTIONS FOR IMPROVED AIR QUALITY IN YORK REGION...... 9
5.1 Improved Public Transit...... 10 5.2 HOV Use...... 11 5.3 TDM Strategies ...... 11 5.4 Improved Land Use Planning ...... 12 5.5 Alternative Fuel Use ...... 13
6.0 MOST PROMISING DIRECTIONS FOR CHANGE ...... 14
6.1 Alternative Modes of Transportation ...... 14 6.2 Stronger Land Use Planning Methods ...... 15 6.3 Trip Reduction...... 16
7.0 CONCLUSION ...... 16
8.0 BIBLIOGRAPHY...... 17
Prepared By: Cansult Limited October 2000
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1.0 INTRODUCTION & BACKGROUND
The quality of our air has a direct relationship with the transportation sector, and particularly with private automobile usage. Gasoline and diesel engines emit greenhouse gases and particulate matter into the environment, contributing considerably to air pollution in cities and global climate change (other sources include industry, the evaporation of liquid fuels and the use of solvents and other volatile products such as oil- based paints). The impacts of these emissions are further compounded when they react with heat and sunlight to cause smog (the hazy air that causes difficult breathing conditions), the most harmful components of which are ground-level ozone and fine airborne particles.
As the urban trend continues for the demand for single occupancy vehicle use, more and more private automobiles enter the road network every year, creating increasingly more trips per day, and greater traffic congestion. York Region is no exception. With residents of the Region commuting across municipal boundaries and crossing over other Regional boundaries, trip lengths in the Greater Toronto Area (GTA) have increased as residents relocate to suburban areas, a trend which is likely to continue. In 1996, the average trip length by York Region residents (auto drivers) was 11.4 kilometres (down from 12.2 km in 1986), as compared to only 9.7 kilometres throughout the GTA (up from 9.4 km in 1986). As such, innovative and comprehensive solutions are needed to reduce the dependence on the private automobile for commuting purposes and increase the proportion of travel completed by “cleaner” methods of transportation that have less harmful effects on the sustainability of the natural environment. As defined in the York Region Official Plan (1999, p.5), a sustainable natural environment is one that is “capable of meeting the needs of the present without compromising the ability of future generations to meet their own needs.”
2.0 CURRENT ISSUES
Air quality is an issue that affects urban areas worldwide. Human-induced activities (particularly the operation of motor vehicles, industrial combustion processes and the evaporation of gasoline, oil-based paint and cleaning solvents) have led to adverse impacts on global warming, acid rain and the ozone layer, which in turn adversely affect the air quality and pollution levels in the atmosphere. For example, the operation of gasoline powered vehicles emit heat-trapping greenhouse gases, including carbon monoxide (CO), carbon dioxide (CO2) and nitrous oxide (N2O), which cause the Earth’s temperature to increase, contributing to climate change in the upper atmosphere and possible threats to the stability of global food sources (Our Environment Our Home, 2000, p.4-3). In the lower atmosphere, the resulting pollution levels can affect vegetation, the state of buildings and most importantly human health. Poor air quality affects those with heart or lung disease and respiratory problems, such as asthma, emphysema and chronic bronchitis. Elderly people and children are particularly at risk for experiencing respiratory problems due to poor air quality. The impacts of air pollution typically worsen during the summer months given the heat and humidity levels. This can cause an increase in mortality and the number of patients admitted to hospitals for respiratory problems, particularly in southern and eastern Ontario.
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The heavily populated Windsor-Quebec City Corridor (which includes the GTA and York Region) experiences high levels of air pollution more frequently and for longer periods of time than any other part of Canada. This is also true for “smog”, a distinct form of poor air quality. Smog, a mixture of smoke and fog in the air, describes a noxious mix of air pollutants largely arising from automobile exhaust that can often be seen as a brownish haze in the air. A combination of sunlight, heat and exhaust from automobiles, trucks and power plants causes smog to form. Smog is comprised of two components: airborne particles and ground-level ozone. Airborne particles are minute droplets of liquid small enough to remain suspended in the air for days and even weeks. These particles can aggravate respiratory problems in humans and may have an impact on the environment by reducing visibility. Ground-level ozone is a gas that naturally forms when sunlight reacts with air pollutants, specifically nitrogen oxides (NOx) and volatile organic compounds (VOC), typically found over urban areas. Ground-level ozone can have a number of health impacts on humans including inflamed breathing passages, eye and nose irritation, interference with the body's ability to fight infection increasing susceptibility to illness – it is especially harmful for seniors, children, asthmatics and people with heart and lung conditions (City of Toronto Public Health Department - www.city.toronto.on.ca/health/smogalert.htm).
Smog alerts in Ontario are usually a result of the migration of pollutants from the United States combining with unfavourable weather patterns; the Ministry of the Environment estimates that more than half of Ontario’s smog problem can be attributed to trans- boundary pollution. There are, however, local sources of pollution that contribute to the severity of smog events and as such, "spare the air" actions must be considered locally.
The Kyoto Protocol that brought together the world’s industrialized nations in 1997 was an initiative to reduce the emission of greenhouse gases into the atmosphere. Participating nations signed an agreement to reduce emissions of six greenhouse gases by 5.2% below 1990 levels by 2012. Canada has agreed to a reduction target of greenhouse gas emissions by 6% below 1990 levels by 2008-2012 (Our Environment Our Home, 2000, p.4-9; Environment Canada, www.ec.gc.ca). The next world summit on the issue of climate change and the environment is scheduled for November 2000.
2.1 AIR QUALITY IN THE GTA The airshed or “atmospheric region of influence” for the GTA is estimated to stretch from Hudson’s Bay in the north, central Georgia in the south, the Dakotas in the west and New Brunswick in the east (Our Environment Our Home, 2000, p.4-2). Although non- local pollutants are found in the atmosphere surrounding the GTA, much of the pollution leading to poor air quality is derived from local sources. Emissions from transportation sources in the GTA have contributed to greater than 80% of the presence of nitrogen oxides, and greater than 50% of the presence of other such greenhouse gases as VOCs, particulates and carbon monoxide in the air. Although pollutants are no longer emitted from industrial sources in the same frequency as in the past, the levels of particulate matter and ground level ozone have still remained high due to an increasing number of automobiles and increased automobile use in the GTA (Our Environment Our Home, 2000, p.4-12).
Current trends regarding transportation and travel behaviour in the GTA are heading in the wrong direction with respect to sustainability of the natural environment. Such trends include:
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S increasing automobile ownership levels, particularly in the suburban GTA; S increasing individual trip rates, occurring largely as auto-driver trips; S increasing suburbanization of the population and employment into areas lacking comprehensive public transit; S reduction in the use of public transit as an alternative to the automobile, despite increases in the overall trip rates (Miller and Shalaby, 2000, 99-100).
More specifically, between 1986 and 1996, daily passenger travel in the GTA increased by 24%. Morning peak traffic volumes increased by 19% and afternoon peak traffic volumes increased by 22%. It is forecast that over the next 25 years morning and afternoon peak traffic volumes will increase by 49% and 51% respectively (Removing Roadblocks, 2000, pp.10-11). Such stark auto dependency in the Region has resulted in increased traffic congestion, vehicle emissions and increased environmental degradation.
The Official Plan for the City of Toronto (November 1994) specifies policies regarding improving air quality. In accordance with the City’s transportation policies, the Official Plan promotes measures to reduce private automobile usage within the City and encourage alternative means of transportation, including public transit, cycling and walking. More specific policies aim to reduce carbon dioxide (CO2), carbon monoxide (CO), hydrocarbon (HC) and nitrogen oxide (NOx) emissions from all sources within the City by 20 percent of 1991 levels by 2006. The Official Plan aims to reduce sulphur dioxide (SO2) and nitrogen dioxide (NO2) emissions by 25 percent of 1991 levels by 2006 (City of Toronto Official Plan, November 1994, §2.3).
The Toronto Atmospheric Fund (TAF) was established in 1992 to help the City of Toronto meet its goal in reducing greenhouse gas emissions. Other Toronto-based associations include the Better Building Partnership (BBP) and the International Council for Local Initiatives (ICLEI) which both work to improve air quality in the Toronto area. The City of Toronto promotes an Anti-Smog Strategy that goes into effect when smog levels in the City are high. The use of public transit over the private automobile and carpooling (if one must drive) are suggested for smog-alert days (City of Toronto, www.city.toronto.on.ca). In June 2000 the first ever Smog Summit was held in Toronto. Three levels of government agreed on a six-point plan to improve air quality in the City, including establishing a clean air partnership with the TAF for financial support, and initiation of an employee trip reduction program to encourage carpooling within the City.
2.2 AIR QUALITY IN YORK REGION Current trends in transportation in York Region point to the private automobile as the primary method of travel. The number of vehicles and the number of trips made in York Region is ever-increasing. One of the fastest increases in travel demand has been seen in school trips – parents driving their children to and from school, or students driving themselves. The old adage “when I was a kid, I walked 2 miles to school – up hill both ways” is no longer true. Overall, these trends have resulted in increases in traffic volumes that exceed the rate of increase in population and employment growth. In response to low density land development patterns characteristic of the Region, travel by public transit is often not the most convenient choice for the Region’s residents and employees. To compound the impacts of increased automobile use, the share of light duty trucks or sport utility vehicles (SUV) on the road has also been increasing in recent
York Region Policy Paper No. 4 Transportation Master Plan Air Quality & the Environment Page 4 of 17 years. These vehicles operate at a lower level of fuel efficiency and thus produce higher levels of greenhouse gas emissions per kilometre driven.
In comparison to the average Ontario resident, the residents of York Region commute longer distances to work, drive their cars to work more often, and use public transit, bicycle and walk less (Our Environment Our Home, 2000, p.2-17). The average number of vehicle trips per day in York Region was slightly above the GTA average of 2.52 vehicle trips per person. Between 1986 and 1996, as the population of the Region increased by 68%, the number of vehicle trips per day increased by 79% while public transit use only increased by 40% (Our Environment Our Home, 2000, p.2-23). Between 1990 and 1997 the number of active registered vehicles in the Region increased 24% (Our Environment Our Home, 2000, p.2-19). As such, transit trips in the Region do not have a significant share of the total travel market.
These consistent increases in the number of households, the number of vehicles on the road and the number of trips per day has led to increased stress on the Region’s road network in the form of traffic congestion. Increased traffic congestion and vehicle emissions have served to further degrade the Region’s environment, particularly its air quality.
2.2.1 Air Quality Index An Air Quality Index (AQI) measures how breathable the air is on a given day. One air monitoring station is located in York Region in Stouffville on Highway 47 east of Highway 48. This station however does not monitor all pollutants required to measure the AQI. York Region and the Ministry of the Environment are working to locate an AQI monitoring station in Newmarket that may be in use in the year 2000 (Our Environment Our Home, 2000, p.4-12). The 5 closest monitoring stations in the Toronto area measured the AQI to be greater than 31 (considered as a moderate level of air pollution) on 30-100 days of the year between 1989 and 1995. These levels are largely due to ground level ozone and particulates (Our Environment Our Home, 2000, p.4-13).
2.2.2 Air Quality Advisories Air Quality Advisories (AQAs) are issued in Ontario and the GTA on days when the Air Quality Index is expected to exceed a reading of 50 at a significant number of monitoring sites throughout Ontario due to ground-level ozone. Warnings are issued by the Ministry of the Environment to the local Medical Officer of Health and the media the day before elevated pollution is expected to occur. These advisories serve the purpose to warn the public that sensitive individuals with heart or lung disease may experience a worsening of their condition. The number and length of AQAs is largely affected by weather conditions, where sunny and hot weather with little wind cause sustained production of ground-level ozone. AQAs have been issued on 5 days in the Toronto area in 1998 and 1997, 3 days in 1996 and 8 days in 1995 (Our Environment, Our Home, 2000, p.4-13).
3.0 YORK REGION OFFICIAL PLAN POLICIES
3.1 AIR QUALITY The York Region Official Plan sets out a goal for the maintenance of a sustainable natural environment as: “to conserve and improve the natural environment for this and future generations so that it will sustain life, maintain health and provide an improved
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quality of life.” The policies contained in the Regional Official Plan serve to identify, protect and help restore definable natural areas and functions in order to uphold the goals for a sustainable natural environment (York Region Official Plan, 1999, p.5). The Regional Official Plan recognizes that air quality is a part of the worldwide environmental system that is affected by the current trends mentioned above, such as global warming and climate change. Policies, programs and practices initiated in York Region can affect air quality locally, and may have small but important effects on the global environment as a whole.
A set of objectives in achieving environmental sustainability, specifically aimed at improving the air quality found in the Region are stated in the Regional Official Plan:
1. To promote compact urban form, transit use and trip reduction as a means of reducing energy consumption and improving air quality.
2. To promote protection of natural areas and systems and urban and rural forestry initiatives as a means of improving air quality and reducing energy use through shading, sheltering and cleansing (York Region Official Plan, 1999, p.18).
Practices in preserving a sustainable natural environment point to strategies emphasizing the use of public transit and trip reduction. Coupled with a decrease in private automobile use, this can serve to help reduce greenhouse gas emissions, specifically carbon dioxide and carbon monoxide. Regional policies promote the increase of regional forest cover, careful consideration of the environment, and the development of compact and efficient communities, which can control pollution and increase the capacity of natural systems to filter and clean the environment, particularly the air (York Region Official Plan, 1999, p.18).
Trees and woodlands are valued for many environmental, social and aesthetic purposes. The Regional Official Plan upholds the value of trees and woodlands to aid in climate control through regulating temperatures and counteracting the effect of greenhouse gases emitted into the atmosphere. Further, trees enhance air quality as they effectively serve to improve oxygen levels in the air and reduce chemical pollutants, odours and absorb noise pollution.
3.2 TRANSPORTATION NETWORK The York Region Official Plan coordinates the provision of regional infrastructure services with growth management policies to substantiate the goals of a sustainable natural environment, economic vitality and healthy communities. It coordinates transportation planning and operates a road network to provide high-capacity inter- municipal service; the strong correlation between transportation and urban form is recognized. As such, the inclusion of compact, mixed-use urban form in new communities is encouraged to support a variety of travel modes, including walking, bicycling and transit use. Compact development also serves to help reduce the overall average trip length required for work, school, shopping and other purposes (York Region Official Plan, 1999, p.63). An expanded and well-integrated public transit system is a necessary component of the transportation network required to reduce vehicular traffic by providing alternative access to jobs and services for all people. A comprehensive and convenient public transit system is an important tool for environmental and energy conservation strategies (York Regional Official Plan, 1999, p.68).
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As such, the objectives set out in the Regional Official Plan promote improving the level of service of the existing and future transportation network: S to plan and protect road and street corridors so that they can be developed in a manner that is supportive of the future urban and rural structure of York Region and that can accommodate future transportation demands; S to ensure that roads are improved in a manner that is supportive of all modes of transportation including walking, cycling, automobile, transit and truck and that minimizes conflicts between these different modes; S to increase the total person-carrying and goods-carrying capability of the regional street and road network in a manner that is consistent with the overall goals and objectives of this plan; and S to provide transit service that is convenient, accessible and equitable to all residents of York (York Region Official Plan, 1999, p.64 and p.68).
The objectives of the Regional Council regarding the transportation network identify the need for: S high-occupancy vehicle (HOV) lanes on regional and other municipal roads, integrated with existing and planned networks in the GTA ; S road improvements and new regional roads including bypasses will address all the policies of this Plan including the Sustainable Natural Environment policies and the Regional Greenland System and will be based on an Environmental Assessment; S the development of a fully coordinated public transit system linking major residential, employment and community activity areas within the Region and making suitable connections with other GTA transit systems; S planning communities based on a significant increase in public transit usage, to support the 30-year target for 33% of peak period trips to be taken by transit in urban areas; S co-operation between area municipalities, GO Transit, the TTC, the Ministry of Transportation and adjacent municipalities in the planning and integration of expanded transit services and to increase transit use for travel across the Region’s boundaries; and S preferential treatment for transit vehicles on Regional roads, E.g.: HOV lanes, reserved bus lanes, bus priorities at traffic signals (York Region Official Plan, 1999, pp.67-70).
3.3 FUTURE TRENDS IN POPULATION, EMPLOYMENT AND TRAVEL York Region is forecast to grow very substantially over the next two to three decades. The Region’s population currently sits at over 730,000. The population is forecast to increase to over 1 million by 2011 and close to 1.3 million by 2026. Also, employment is expected to almost double from its current figure of approximately 370,000 to 700,000 in 2026 (York Region Population, Households and Employment Forecasts, 1996-2026, 2000, p.4). As a result of such forecasts, trip generation and travel demand on Regional roads will in turn increase. With a rise in the resident population, greater household formation is also expected. The 1991 Transportation Tomorrow Survey identified that of the 1,032,000 daily trips taken in York Region, greater than 80% were by private automobile. Trips by public transit and school bus modes accounted for approximately 8% of total trips and walking and bicycling accounted for approximately 5% of total trips (York Region Official Plan, 1999, p.66).
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The current trend experienced and expected to continue in the GTA is the incidence of a greater number of households with a lower average number of members per household. With an increase in the number of households, the number of private automobiles owned and operated per household is also forecast to rise. An increase in travel demand by private automobile use incurs a stress on the Region’s air quality as sheer traffic volume creates further congestion, leading to greater levels of greenhouse gas emissions and ground-level ozone.
A Growth Management Strategy is an initiative in the works as a partnership between York Region and area municipalities. This is a necessary implement to ensure controlled and defined areas for growth. As such, components of this system include: S a requirement through the Regional Official Plan for comprehensive planning of new communities, typically on a concession block basis; S a recommendation for the use of phasing policies for all new urban secondary plans tied to specific infrastructure capacities; S coordination by the Region and area municipalities regarding land use decisions and capital plans for infrastructure and financial planning; S a long term transportation network plan; S a 10 year capital works program for orderly delivery of new and improvements to existing infrastructure; S the establishment of a York Region Transit System to coordinate and improve transit services in the Region; and S a new “Green York Region” initiative to be considered by Council, in attempt to coordinate natural environment programs in the Region (Refining the Region’s Growth Management Strategy, 1999, p.4 and p.8).
4.0 RELEVANT EXPERIENCE IN AIR QUALITY & THE ENVIRONMENT
Initiatives undertaken by other governmental jurisdictions regarding the protection of the environment and air quality serve as examples for York Region to follow. Favourable experience in other places of the world indicates ways in which improving the current state of our air is possible.
4.1 CITY OF TORONTO – SMOG ALERT RESPONSE PLAN The City of Toronto (City of Toronto, www.city.toronto.on.ca/health/smogalert.htm) has adopted a Smog Alert Response Plan, the objectives of which are to:
1. implement divisional smog alert response plans that will see short term reduction or suspension of activities that contribute to poor air quality on smog alert days; 2. provide information to City staff serving at risk groups such as children and seniors to support informed programming and service delivery decisions on smog alert days; and 3. provide education materials for distribution by City staff serving at risk population such as children and seniors so that these client groups can learn about smog, its effects on health and the precautions they should take on smog alert days.
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The Smog Alert Response Plan outlines special actions that the City of Toronto will take on the smog alert days, which include: S reducing the use of non-essential gasoline and diesel powered vehicles; S minimizing vehicle idling ; S reducing the use of oil-based paints, solvents and cleaners; S postponing the use of gasoline powered equipment; S suspending the use of pesticides; S postponing refuelling of vehicles until dark; and S advising staff in general to take public transit or walk to work (casual clothes are permitted on these days).
4.2 CITY OF TORONTO – CORPORATE SMOG CONTRACTS The Corporate Smog Contracts is a Toronto Environmental Alliance (TEA) program that targets altering corporate practices and employee behaviour in effect to reduce greenhouse gas emissions leading to smog in the City of Toronto. This program encourages the senior management of industries to sign a contract committing them to undertake a program that includes at least two of the following elements: S an emergency smog plan for days when the AQI is predicted to reach a level of 50; S a “Green Fleets Program” designed to reduced emissions of the company fleet; S an employee trip reduction program with at least two sustainable transportation options to alter commuter behaviour (carpool matching with TEA’s ride Together program, commuter bicycle facilities or transit pass subsidies); and S a corporate practices emissions reduction program to reduce in house pollution (Smog: Make It or Break It, 1998, 8).
4.3 TULSA, OKLAHOMA – “OZONE ALERT” DAYS On days where ground-level ozone levels are high in Tulsa, Oklahoma, free public transit is provided by the local government to discourage private automobile trips further aggravating air pollution. The local government and industry have come together to promote transit use or higher occupancy vehicle use on a regular basis. Examples of such include offering discounted bus passes, draws for free bus passes, promoting car pooling, free emission testing for employees and encouraging flexible work hours (Smog: Make It or Break It, 1998, p.8).
4.4 PARIS, FRANCE – VEHICLE RESTRICTIONS National legislation passed in 1996 allowed the City of Paris to effectively respond to severe smog plaguing the city. On October 1, 1997 a local government policy permitted cars with licence plates ending in an odd number only and cars holding three or more occupants to enter or drive in the city. Other vehicles were stopped en route into the City. Commuters were encouraged to take public transit, which was free during that day. Vehicles allowed into the city centre were not permitted to exceed 60 km/hour on highways to control emissions. Due to poor air quality in the Paris area, it is expected that such vehicle restrictions may become a permanent situation (Smog: Make It or Break It, 1998, p.8).
4.5 PORTLAND, OREGON – URBAN GROWTH BOUNDARY The City of Portland, Oregon established an urban growth boundary (UGB) in 1979, an invisible line encompassing a number of cities and counties within the Portland
York Region Policy Paper No. 4 Transportation Master Plan Air Quality & the Environment Page 9 of 17 metropolitan area, outside of which urban growth is discouraged or prohibited. Efficient urban development, also referred to as “smart growth” is the prime motivation for the UGB concept. With the prevention of urban sprawl, new development is directed to higher densities and closer to the city centre. As such, transportation demand in effect would be lessened than if development were permitted beyond the boundary. With residential districts located in closer proximity to the Central Business District (CBD) efficient public transit is possible and the demand for private automobile commuting is lower. Even with the implementation of the UGB, air pollution and smog is an issue affecting the Portland area. The Oregon Department of Environmental Quality has issued state rules to reduce toxic air pollutants through a Vehicle Inspection Program to ensure that emission control systems in vehicles are operating properly. The program identifies vehicles that are producing more air pollution than may be permitted and are in need of maintenance. Another policy initiated by the state of Oregon is the “ECO Rule” initiative, adopted for the Portland metro area in 1996. This policy requires that area employers with greater than 50 employees at a work site reduce employee single occupancy vehicle use for commute trips by 10% over a three year period. This program can in effect shift travel demand towards higher occupancy vehicle modes, such as transit, carpooling, and alternative forms of travel such as pedestrian and bicycle transportation (City of Portland, www.city.portland.or.us).
The above examples of how municipalities have reacted to air pollution in their jurisdictions illustrate the importance of reducing harmful emissions arising from automobile use. Policies and programs targeted at reducing private automobile use have attempted to redirect travel demand to higher occupancy modes of transportation. Influencing travel demand behaviour can in effect improve traffic congestion found on the road network and create a more sustainable natural environment.
5.0 POLICY DIRECTIONS FOR IMPROVED AIR QUALITY IN YORK REGION
Environmental protection and the maintenance of good air quality are reflected in policies aimed to alter the current state of the transportation system in York Region. Several recent transportation reports have been prepared to assess the existing York Region transportation system and recommend policies to influence a future transportation system that is less reliant on the use of the private automobile. Relevant reports include: S Crossing Boundaries – Coordinating Transit in the Greater Toronto Area; S GTA Cross Boundary Study Overview; S GTA HOV Network Strategy Study; S Highway 407 Transitway System Plan and Station Site Plan Study; S Highway 7/407 Transit Planning Strategy Study; S Highway 7 Corridor Land Use & Transit Strategy; S Inter-Municipal Highway No. 7 Corridor Study, Highway 404 to West of Leslie; S North Metro Boundary Transportation Review; S Removing Roadblocks – A Strategic Transportation Plan for the GTA and H-W; S Transit Corridor Protection Study Highway 407/Parkway Belt West Corridor from Highway 403 to Markham Road; S York Region HOV/Rapid Transit Study; and S York Region Transit Study.
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Similar themes are found in the body of these reports. Emphasis is placed on the need for an integrated public transit system to play a much greater role in the Region’s transportation system. This is deemed essential to sustain the growth in population and employment forecast for York Region and maintain an attractive quality of life. Policies related to modal priority are necessary, where emphasis must be given to transit over road improvements to encourage a high transit modal split early into the 30 year planning horizon. In order to achieve a transit modal split of one out of every three trips, transportation system expansion needs to be directed towards public transit initiatives. As such, the design of road improvements to accommodate transit use, including the addition of bus bays, should be the essence of road improvements in the interim (York Region HOV/Rapid Transit Study, 1995, pp.2-8).
5.1 IMPROVED PUBLIC TRANSIT To reduce the dependence on the private automobile (particularly single occupancy vehicles) and hence increase the viability of rapid transit services, a series of major transportation network improvements would be required. Public transit service must be offered at a regional scale to capture a significant market share. Improvements to public transit making the system more comprehensive, integrated and convenient, can serve to bring about a decrease in automobile dependency and the associated environmental side effects – traffic congestion and air pollution. A York Region public transit system should be planned as a fully integrated component of a comprehensive GTA-wide transit network. Coordination between GO Transit services and the transit systems run by the area municipalities and adjacent regions will make transit travel more accessible and convenient. The system should be capable of being built incrementally in response to future congestion and land development opportunities.
In order to attract commuters in York Region, the single largest group of peak period travellers, the transit system must be convenient enough to serve a substantial proportion of work trips. The concept of a hub and spoke system would make the transit network more comprehensive – the “hubs” would serve as the transit stations in the downtowns, regional centres and designated urban areas, with “spoke” routes serving as transit routes between the hubs (York Region HOV/Rapid Transit Study, 1995, pp.2-9). The establishment of transit gateways at transit hubs to include passenger parking lots will provide a convenient opportunity for connection points for local buses, feeder GO buses, and for SOV commuters to transfer between automobile and transit trips (Removing Roadblocks, 2000, p.5).
Other transit network improvements point to expanding the three commuter rail lines which run through York Region to increase train frequency, add or relocate stations, and add extensions to rail services. Extension of both the Yonge and Spadina subway lines into York Region to reach Highway 7 can further improve sustainable travel options for York Region commuters. Upon the completion of the Sheppard subway line and the relocation of the Oriole GO Station on the Richmond Hill line, a connection between the two services will be established. Exclusive bus service operating on separate right-of- ways or on reserved bus lanes within key areas of the Region can provide an alternative for inter-municipal commuting, including a possible east-west transitway along the Highway 7/407 corridor from the York/Peel boundary to the York/Durham boundary and a north-south transitway along the Yonge Street corridor from the proposed subway station at Highway 7 northward into Newmarket
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Additional measures, targeted specifically at high automobile trip generators, should also be considered (such measures are further discussed in Section 5.3 TDM Strategies). In particular, in response to the increase in student drop-offs and student trips, schools within York Region should be targeted to reduce overall automobile use and encourage walking shorter distances. Current efforts to promote alternatives to the automobile should be reinforced.
5.2 HOV USE HOV lanes should be an integral component of the transportation system in York Region. The 1995 York Region HOV/Rapid Transit Study prepared by McCormick Rankin and Delcan details a series of policies and initiatives required for HOV usage within the Region. Incentives may be required to shift SOV use to HOV use, mainly in the form of car or vanpools. Car/vanpooling often occurs as existing road capacity does not effectively support SOV trips (York Region HOV/Rapid Transit Study, 1995, pp.3-18). The primary objective of HOV lanes is to attract SOV commuters. A transfer of transit users to HOV use does not decrease the number of cars on the road. Therefore the target market for the expansion of HOV use is SOV users who would not ordinarily take transit for commuting purposes (York Region HOV/Rapid Transit Study, 1995, p.8-2). As such there is the potential for a reduction of private automobiles on the road. An integrated HOV network on Regional roads can accommodate car/vanpooling needs in the interim period and a more comprehensive transit network in the future. The primary purpose of the implementation of an extensive HOV network is threefold: S to encourage car/vanpool use for trips that cannot be reasonably made by public transit; S as a precursor for an ultimate comprehensive rapid transit network; and S to provide priority to transit vehicles feeding rapid transit and commuter rail networks (York Region HOV/Rapid Transit Study, 1995, p.8-2).
HOV and reserved bus lanes are useful in reducing energy consumption and air pollution as increased vehicle occupancies allow a fewer number of vehicles to carry the same or greater number of people. This reduces the total number of vehicles on the road and serves to decrease traffic congestion and increase the efficient operation of surface transit routes.
5.3 TDM STRATEGIES Transportation Demand Management (TDM) strategies are pivotal to sustaining the natural environment and improving air quality in the Region. In controlling transportation demand, TDM in effect serves to reduce the number of trips taken in a given area. A reduction in travel and in trip length can aid in cutting down on the level of vehicle emissions produced in the Region. TDM strategies can serve to alter the demand for journey-to-work trips, the number and length of private automobile trips and increase the demand for HOV trips. A number of measures can be initiated as part of a TDM strategy (several are currently in place in parts of Toronto and the GTA). Expansion of some of these initiatives across the boundaries of York Region can aid in altering travel demand in the Region and provide links to the City of Toronto’s existing comprehensive transportation system.
Flexible or alternative work schedules and telecommuting provides an opportunity for a reduction in the number of automobiles using the road network on a daily basis. Telecommuting allows employees to work from home via remote access and therefore
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decreases the need for SOV journey-to-work trips. Flexible or compressed work weeks provides employees with the opportunity to work fewer days per week due to longer work days, where a 40 hour work week can be compressed into four days rather than five. This concept can ease peak hour traffic volumes by moving journey-to-work trips out of the weekday peak periods.
Trip chaining is another strategy for trip reduction. Trip chaining points to compressing a number of household trips into a chain of trip destinations taken in one trip. As a result, automobile use, travel length per person and the number of trips taken per person will decline. Short automobile trips are the most polluting as engines do not heat up enough to be efficient (Smog: Make It or Break It, 1998, p.26). As such, chaining trips into larger single trips will reduce the occasion of greenhouse gas emissions polluting the air.
TDM is further explored in Policy Paper No. 3: Transportation Demand Management and Telecommuting. Other TDM measures to be considered by the Region of York, outlined in above noted paper include: S HOV lanes; S ridesharing programs – car/vanpooling; S building and expanding commuter parking lots at key locations throughout the Region such as transit facilities or expressway interchanges; S road pricing/tolls; S flexible work hours (or compressed work weeks) and telecommuting; and S expansion of bicycle networks to encourage alternative travel.
5.4 IMPROVED LAND USE PLANNING Land use decisions in York Region have traditionally been made with the private automobile at the forefront. The urban design patterns and low density developments which characterize the suburban landscape in the Region have made necessary the use of the private automobile, and have relegated the use of public transit to a more minor role (York Region HOV/Rapid Transit Study, 1995, p.2-9). In order for transit to have a more predominant influence on travel patterns, land use planning requires rethinking. New communities must be planned with the following in mind: S higher density development levels with mixed uses; S a comprehensive pedestrian network; S a more extensive and continuous grid of arterial and collector roads to make transit services more accessible; and S improved building siting.
Higher density developments are more likely to support walking and transit and thus lessen the dependence on the automobile, which in turn will reduce air pollution. The benefits of such can be further increased with the introduction of mixed land uses which is key in reducing the number of trips taken per household and reducing overall trip lengths in the Region. Mixed use developments offer communities composed of integrated residential, employment and institutional uses. In addition to the opportunity for pedestrian travel, this type of development also promotes the ability for residents to live and work within the same neighbourhood or community. As such, improved live/work relations in the Region’s municipalities can decrease travel length for journey- to-work purposes, a stark alternative to the bedroom community notion found in older areas of development in the Region’s municipalities.
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Policies included in the York Region Official Plan and the Official Plans of area municipalities require that walkways and more direct road patterns be included in new subdivision plans to provide safe and convenient access between residential dwellings and other facilities within the community (eg. schools, places of work, commercial areas, transit services, etc.). In urban areas the walking distance to a transit stop should be no more than 500 metres for 90% of all residents, and no more than 200 metres for 50% of all residents (York Region Official Plan, 1999, p.68).
Within the development, the layout of the road system is critical from the transit perspective. Transit vehicles can usually only be accommodated by the geometry of collector and arterial roads, and consequently the layout of these roads determines the array of potential bus routing options. In addition, interconnecting roadways must also be implemented to ensure ready access between adjacent communities, thus minimizing the amount of unnecessary travel (this is particularly important for transit routes that serve adjacent developments). Many widely-used street design principles intended to discourage through traffic also inhibit efficient bus routing, especially when adjacent subdivisions built by different developers are designed so that each creates an atmosphere of seclusion. Municipal and Regional plans must contain policies encouraging collector road continuity.
With respect to site design, current practices do not often adequately provide for the safe and convenient passage of pedestrians between buildings and adjacent walkways and transit services. This is again due to the fact that the needs and desires of automobile uses are often the primary consideration in site design. Rather, to discourage the use of the automobile (and hence encourage walking and transit use), buildings should be appropriately located on the development site to reduce walking distances and increase on-site pedestrian safety and comfort. Zoning by-laws that require large setbacks, and thus encourage the placement of parking between streets and buildings, should be adapted to reduce such requirements.
Neo-traditional communities that embrace many, if not all, of the development elements discussed above can be found in a number of municipalities in York Region and thus can serve as models for upcoming developments.
5.5 ALTERNATIVE FUEL USE Alternative fuel use is an innovative option for the reduction of vehicle emissions into the environment. Current innovations towards the electric car and fuel cell technology can alter the demand for gasoline- and diesel-powered engines. Natural gas and other alternative fuel powered engines, as well as hybrid vehicles, can provide cleaner vehicle emissions and reduce the amount of greenhouse gas production. Fuel cell technology is an electrochemical process producing electricity silently and without combustion. The by-product of this process is water vapour. Fuel cells using liquid fuels (methanol or gasoline) to produce hydrogen have some emissions; vehicles that carry hydrogen directly are true zero emission vehicles. Buses that run on a fuel cell (liquid hydrogen and oxygen) are currently being tested in Vancouver, California and Europe, and may be ready for mass production within a few years (Smog: Make It or Break It, 1998, p.26). Electric vehicles do not create fossil fuel combustion and therefore are significantly cleaner than gasoline-powered automobiles, especially if they are charged by electricity derived from natural gas, solar energy or hydrogen. Traditional diesel buses emit 2462g of CO2 and 17g of ozone per kilometre; in contrast, buses which use hydrogen produced
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by steam reformed natural gas emit 701g of CO2 and 2g of ozone per kilometre (Howard, 1999).
The California Clean Air Act of 1990 mandated that at least 2% of the cars sold in the state by 1998 must have zero tailpipe emission technology, 10% of cars sold must meet this target in 2003 (Stutz, 1995, p.388). In Canada, the Federal government may be the most appropriate agency to promote and direct technological changes toward alternative fuels. Innovation in vehicles that produce clean emissions is largely an initiative by the private sector, but needs public sector support. Policies to encourage and support alternative fuels and cleaner vehicle emissions regarding both private automobiles and public transit fleets should be reflected in the York Region Official Plan.
6.0 MOST PROMISING DIRECTIONS FOR CHANGE
Air quality is an issue that affects everyone in York Region. Trends in private automobile use, including an increase in single occupancy vehicles, larger vehicles and more vehicles on the road have not only congested the regional road network (and the overall GTA road network) to the point of inefficiency, but has served to degrade the environment. For the future of York Region and the GTA as a whole, a shift towards alternative modes of transportation, including HOVs and public transit, will be compulsory to sustain the natural environment given the projections for population and employment increase; higher occupancy vehicles are the most effective means to protect the natural environment from harm and counteract increasing vehicle emissions. A comprehensive and integrated regional transit network is sorely needed, including fare coordination, to encourage commuters to take public transit and make transit trips more attractive over the private automobile. For York Region to achieve a transit usage target of 33%, transit system improvements need to be initiated as soon as possible. The following sections below outline the most promising directions for change regarding air quality in York Region.
6.1 ALTERNATIVE MODES OF TRANSPORTATION Policies to encourage alternative modes of transportation need to be initiated by the Region and area municipalities in the Official Plan process. A coordinated Regional transit system will become the responsibility of York Region on January 1, 2001 to integrate the individual public transit systems presently found within the Region’s area municipalities. The Regional Official Plan must emphasize the need for a seamless public transit system, not only to include York Region’s area municipalities, but also the other GTA Regions. Policy Paper No. 1: Public Transit, outlines in detail recommendations for improved public transit within the Region.
For transit, higher occupancy vehicle and bicycle trips to be viable, public programs and policies must be in place to support expansion of the transit network and implementation of transit priority measures to ensure travel time savings and convenience. A variety of corridors delineated for transit expansion within York Region include the following: S Highway 7/407 transitway corridor; S York University corridor linking the Vaughan Corporate Centre to the Spadina subway line at the Downsview station; S Yonge Street Transitway running between Newmarket and the Yonge subway line at Finch station; and
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S Highway 48 corridor from Markham to an extended Scarborough Rapid Transit line in the City of Toronto.
The existing GO Rail lines that bring commuters from the suburbs into downtown Toronto need to be enhanced and extended to meet the demand of increasing populations in York Region and the other suburban regions. GO Rail lines within York Region requiring improvements include: S Bradford line – two-way all-day service between Vaughan and Union Station with extended rush hour service to Newmarket; S Richmond Hill line – two-way all-day service between Richmond Hill and Union Station; and S Stouffville line – two-way all-day service between Markham and Union Station with extended rush hour service to Stouffville.
Given these improvements, the GO Rail network can be considered the “spine” of higher order transit service within York Region. As such, additional improvements to the ancillary transit services (eg. surface buses) should be made in this context and thus provide the necessary connections between the higher order transit services and the various communities throughout the Region. As such, enhanced GO bus services on GTA roads are necessary to connect smaller urban centres to the GTA transit network.
6.2 STRONGER LAND USE PLANNING METHODS Land use planning must be integrated into plans for the regional transportation system. Higher density mixed-used development is key to support higher occupancy vehicle travel (eg. public transit and carpooling). As such, urban form and development trends towards mixed land uses must be promoted through public and private partnerships, with a mutual understanding of the importance of encouraging a shift to alternative modes of travel. The Regional Official Plan outlines numerous parameters to implement stronger land use planning in relation to transportation planning.
Improved live-work relations are the main thrust in reducing travel demand in the Region and need to be reinforced by Regional Official Plan policies toward community development. Mixed use and higher density residential and commercial developments can promote alternatives to automobile travel, as journey-to-work as well as non-work trips can be completed via public transit and other higher-occupancy vehicle means of travel. Mixed land uses can serve to decrease trips per household and trip length per person as greater services may be provided for within a given community.
Residential communities planned on a basic grid road network, for instance, the neo- traditional community plan, can improve accessibility and accommodate more convenient transit routes. As such, the development of neo-traditional subdivisions should be promoted within the Regional and area municipalities’ Official Plans. The Regional Official Plan must reinforce the need for continuous collector roads within neighbourhoods and to connect with adjacent neighbourhoods to render transit use, walking and cycling more efficient and accessible. Through the provision of adjacent residential and non-residential uses within communities, improved live-work relations can result and may decrease the need for commute trips via private automobile and in turn reduce harmful vehicle emissions leading to air pollution.
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6.3 TRIP REDUCTION Trip reduction and TDM strategies are important means of reducing traffic congestion on the Region’s road network and decreasing greenhouse gas emissions. Programs or policies aimed to control travel demand need to be implemented by public-private partnerships or by higher levels of government. The Region can take on a role in influencing travel demand through coordination with area municipalities as well as large private firms located within the Region to implement TDM strategies, such as ridesharing, parking controls, flexible work hours and telecommuting. The Regional Official Plan needs to reinforce the importance of TDM measures in its policies towards transportation planning. These strategies can serve to reduce trip generation and trip lengths and as such decrease air pollution produced within the Region. This strategy can have profound effects on reducing automobile travel and improving air quality if partnerships are reached between York Region, the area municipalities and private enterprise, and as such can prove to be the most promising direction for change.
7.0 CONCLUSION
As traffic volumes and ensuing traffic congestion increases every year in York Region, air quality becomes more and more of a concern. Methods to decrease traffic generation, trip length and single occupancy automobile trips need support by the Region to be realized. Innovative land use planning, the use of transportation demand management measures and alternative fuels can change the pattern of polluting vehicle emissions within York Region. Options to promote HOV use can further serve to reduce harmful emissions released into the air. Public-private partnerships and direction from the Region for initiatives in part by area municipalities are needed to improve air quality with the Region and support a sustainable transportation system and a sustainable natural environment.
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8.0 BIBLIOGRAPHY
City of Portland, www.city.portland.or.us.
City of Toronto, In Diversity Our Strength: New Mobility for the New Millennium, Draft Report of the Sustainable Transportation Working Group of the Environmental Task Force, 1998.
City of Toronto, Official Plan, November 1994.
City of Toronto, Healthy City Office, Smog: Make It or Break It, April 1998.
City of Toronto, www.city.toronto.on.ca/health/smogalert.htm
Environment Canada, www.ec.gc.ca.
Greater Toronto Services Board, Removing Roadblocks – A Strategic Transportation Plan, January 2000.
Howard, Paul F, “Zero Emission Fuel Cell Electric Engines”, Moving the Economy, www.city.toronto.on.ca/mte, 1999.
McCormick Rankin in Association with Delcan, York Region HOV/Rapid Transit Study, June 1995.
Miller, Eric and Amer Shalaby, Travel in the GTA: Past and Current Behaviour and Relation to Urban Form, the Neptis Foundation, January 2000.
Ministry of Transportation (MTO), Towards a Greater Toronto Area Transportation Plan, Technical Report #11: Environmental Perspective, October 1997.
Moving the Economy website, www.city.toronto.on.ca/mte.
Stutz, Frederick P., “Environmental Impacts” in The Geography of Urban Transportation, ed. Susan Hanson, New York: The Guildford Press, 1995.
York Region, Official Plan, 1999.
York Region, Our Environment Our Home, 2000.
York Region, York Region Population, Households and Employment Forecasts, 1996- 2026, 2000.
York Region Policy Paper No. 4 Transportation Master Plan Air Quality & the Environment TRANSPORTATION MASTER PLAN
Policy Paper No. 5
GOODS MOVEMENT & THE ECONOMY
For Discussion Purposes Only
October 2000 TABLE OF CONTENTS
1.0 INTRODUCTION...... 1
2.0 BACKGROUND ...... 1
3.0 CURRENT ISSUES...... 3
3.1 Road Network Congestion...... 3 3.2 Dangerous Goods Movement...... 4 3.3 Impacts on Residential Areas ...... 4 3.4 Wear & Tear on the Road System ...... 6 3.5 Tolls on Highway 407 ...... 6 3.6 E-Commerce ...... 7
4.0 YORK REGION OFFICIAL PLAN POLICIES...... 7
5.0 RELEVANT EXPERIENCE ELSEWHERE...... 8
5.1 Edmonton, Alberta...... 8 5.2 Vancouver, British Columbia ...... 9 5.3 Region of Ottawa–Carleton, Ontario...... 10 5.4 Seattle, Washington ...... 10 5.5 New Jersey...... 11
6.0 RANGE OF POLICY DIRECTIONS ...... 11
6.1 Expand Freeway Network...... 11 6.2 Increased Traffic Management ...... 12 6.3 Foster Changes in Travel Modes and Time of Travel ...... 15
7.0 MOST PROMISING DIRECTIONS FOR CHANGE ...... 18
8.0 BIBLIOGRAPHY...... 19
Prepared By: Cansult Limited October 2000
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1.0 INTRODUCTION
Goods movement is closely integrated with the structure of the regional transportation system, urban form and the location and conduct of industry and commerce. Trade is the engine of the region’s economy and it is highly dependent on an efficient and effective transportation system, particularly the highway networks. Current trends in the province’s highway system include: S annual vehicle kilometres of travel exceed 50 billion; S 840 million tonnes of goods are transported on highways daily and is ever increasing; and S expenditures by three levels of government on infrastructure have exceeded $2.5 billion in recent years.
Road and highway improvements typically lead to lower operating costs and savings in travel time for users. Road improvements will result in less wear and tear on vehicles, improved fuel efficiency and shorter trip durations, which is of benefit for trucking firms as this permits lower vehicle operating and labour costs. With lower transport costs, trucking firms can direct these savings to reductions in the cost of goods and services, or they can derive a higher profit. An efficient road system can provide savings for local goods manufacturing and shipping industries that will in turn improve the economy of the Greater Toronto Area (GTA) and York Region.
It is estimated that total commercial trucking activity in Ontario creates employment for approximately 200,000 workers, or 4.8 per cent of provincial employment. Of the total, about 90,000 workers are employed in the for-hire and private sectors of the industry (OTA, 2000). For every 100 jobs in the for-hire trucking industry, 67 jobs are created elsewhere in the economy.
Given the economic importance of commercial transportation, the safe and efficient movement of goods and services within, and through, York Region must be a key element of the Transportation Master Plan. In order to develop an appropriate strategy for goods movement, the Transportation Master Plan must outline: S a clear understanding of the nature of goods being transported, both inter-regional and those originating in and/or destined to areas beyond York Region; S an identification of critical issues; and S the implementation of a plan that addresses the current and future needs of the Region.
Although there are a number of viable modes of transportation currently employed in the GTA for the movement of goods and services, this paper will address only the land freight element. In particular, the focus will be on the truck mode given its dominance as both the primary and secondary means of travel (eg. for rail transport, trucks are typically employed at either the point of origin or destination, or both, to complete the journey).
2.0 BACKGROUND
The GTA, including York Region, is Canada’s manufacturing heartland, with significant trade to the United States and other Canadian provinces. As such, the GTA experiences a large proportion of truck traffic associated with goods movement. Within
York Region Policy Paper No. 5 Transportation Master Plan Goods Movement & the Economy Page 2 of 21 the broader Central Ontario region 11% of the vehicle-kilometres of travel is by truck, equating to approximately 2.4 million vehicle-kilometres per year of truck traffic. In addition, with only 15% of the total lane-kilometres, the Central Ontario region comprises 35% of all truck traffic in the province, a reflection of the high degree of urbanization and manufacturing and service industries in south central Ontario and the fact that all major highways in the region bisect the GTA.
Freight information reported in various reports, studies and articles, indicate the following: S trucks are responsible for moving approximately 70-75% of all land freight in Ontario (GTSB, January 2000; MTO, 1998; OTA, 2000); S over $10 billion worth of goods are shipped in the GTA annually, representing over 140 million tonnes of goods transported (MTO, 1998); S there are more than 250 million truck movements annually in the Toronto and Hamilton-Wentworth region (GTSB, January 2000); S about 24 million trucks drive through the GTA per year, carrying $700 billion in cargo; Canada’s entire service industry is worth $600 billion (“Sprawl”, June 2000); S trucks moved $223 billion worth of goods between Ontario and the US in 1998, only $46.8 billion was moved by rail (“Sprawl”, June 2000); S between 1985 and 1992, increases in truck traffic on the GTA road system of 20 to 50% have been realized (GTSB, January 2000); and S truck haulage in Ontario increased more than 12% in 1997 (OTA, 2000).
The 1987 Metropolitan Toronto Goods Movement Study (TGM) estimated that over 700,000 truck trips per day occur in the Toronto region. The 1997 Strategic Goods Movement Corridor Analysis (SGMC) study, prepared for the Ministry of Transportation, found that daily commercial vehicle volumes on the 400-series highways are both substantial and increasing. On each of the major freeway links, the two-way flow exceeds 8,000 trucks per day. At some points on the GTA freeway network, there is an average annual increase of more than 10 per cent in truck movements. Truck volumes along Highway 401 in the GTA exceed 35,000 per day (carrying 460,000 tonnes of goods), near Highway 400 and Weston Road; on Highway 427, they range from 8,000 to 26,000. Truck volumes along Highways 400, 404 and 410 within Toronto exceed 10,000 per day, as do truck volumes along much of the QEW.
Truck traffic within and through York Region has been identified as part of the York Region cordon count program, initiated in 1983 and repeated every 2 years hence. Although data has traditionally been collected for three classifications of commercial vehicles, referred to as light, medium and heavy trucks, the term “truck” typically refers to medium and heavy vehicles. These include trucks with dual rear tires, box vans, heavy duty pick-up trucks and tractor trailer units; light trucks are those with characteristics similar to automobiles and small vans. Table 1 provides the range of truck volumes and percent of total vehicle traffic realized in the 1993 cordon count program during the peak travel periods (a total of 9 cordon locations were employed, including counts at the boundaries between York Region and the adjacent regional municipalities, along Highway 400 and Highway 404, and at a number of internal locations). As can be seen, the relationship between the AM and PM periods is approximately equal and opposite. As expected, the greatest truck volumes are observed travelling between York Region and Toronto (across the North Metro Cordon) en-route to Highway 401.
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Table 1: 1993 York Region Truck Traffic1 Direction of Travel Time Period northbound southbound westbound eastbound AM Peak Period volume 250-2850 300-3400 450-1500 400-1450 06:30 to 09:30 percent 4-11.5% 3-5% 4-10% 4-10% PM Peak Period volume 250-3200 250-2900 300-1300 450-1200 15:30 to 18:30 percent 2.5-4% 3-8.5% 3-6% 3.5-7.5% 12-hour Period volume 1200-15600 1250-15500 1550-6150 1700-5950 07:00 to 19:00 percent 4.5-8.5% 4.5-7.5% 5-9.5% 5.5-9.5% 1 trucks include medium and heavy vehicles only (pick-up trucks and vans are considered autos)
Ontario is forecast to lead all other provinces in terms of growth in trucking during the period 1994 to 2010. Ontario's intra-provincial truck traffic is expected to grow by an average annual rate of 2.5% and its market share by 10%. Similarly, Ontario is expected to continue to lead in terms of its share of inter-provincial trucking. Total Ontario trucking of exports is expected to grow by an average annual rate of 3.7% over the forecast period. Given the predominance of travel, development and road infrastructure in the GTA, these forecast increases are likely to be focussed within the GTA. As such, the growth in truck travel within and through York Region is expected to be slightly higher than the growth rates predicted for the province.
3.0 CURRENT ISSUES
3.1 ROAD NETWORK CONGESTION The manufacturing and service industries account for 40% of the GTA’s Gross Metropolitan Product as well as 33% of employment in the region. The strong manufacturing and service sectors gives the region a substantive economic base, providing diversity and stability to the GTA. This serves to enhance the attractiveness of the region as a whole, which increases its competitiveness as a place in which to reside, work and invest. Traffic congestion arising from increases in private automobile commuting and commercial vehicle traffic for goods movement diminishes the relative attractiveness of the region for business and domestic purposes.
Congestion continues to be one of the most important concerns for goods movement vehicles within the GTA, including York Region (this presents a paradox in that one way to reduce congestion is to reduce truck traffic). While congestion is not present on all points on the highway network at all times, it has the potential to be present at any time due to its unpredictability. Whether congestion actually occurs is immaterial - it must be accounted for in the movement of goods, as must its disproportionate impact on trucks (as determined by the 1997 GTA Trip Time Travel Survey).
The Metropolitan Toronto Goods Movement Study (1987) estimated that the annual cost of congestion to the goods movement industry in the GTA was $1.9 billion or 30% of the cost of moving goods. The report estimated that by 1997, congestion would have added a further 80-90% to the total cost of goods transportation. Since the majority of goods deliveries in the GTA are by truck, productivity is suffering, suggesting that the effects, in time, will be felt by all Canadians. The GTA Trip Time Travel Survey study has confirmed this prediction. Of the goods movement firms surveyed in the study, 56% indicated that congestion has a direct negative effect on the cost of their operation,
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because of its limiting effect on driver and equipment productivity. The reason for this added cost is the requirement of many trucking companies to meet just-in-time (JIT) delivery schedules, eliminating the storage and inventory of goods and thus reducing the overall manufacturing costs. However, this has lead to a greater number of commercial vehicles on the road network (although smaller trucks are preferred to larger), and when coupled with an increase in private automobile use, traffic congestion on major arterial roads and highways has increased significantly over time. In the retail sector, JIT is being replaced by quick response (QR), which entails zero safety inventories. Orders are placed with manufacturers as demand materializes and delivery to a point of purchase can occur on the same day. QR results in even more frequent deliveries of smaller quantities than JIT.
In order to meet these JIT/QR service requirements, carriers have had to alter their operational practices in the face of ever present, potential or otherwise, congestion. The most common operational practice to resolving the congestion dilemma is to start earlier in the morning and finish later at night. However, longer operating hours, coupled with more frequent trips, results in higher transportation costs. Transportation now accounts for as much as 15% of the final cost of a finished product; delays due to congestion can increase this further to approximately 20% (representing a 30% surcharge to transportation costs).
3.2 DANGEROUS GOODS MOVEMENT The transport of dangerous or hazardous goods is an issue that faces the movement of goods in any concentrated urban area, including York Region. Many regions have designated dangerous goods movement routes on highways and arterial roads, in order to alleviate the concern of spillage or damage occurring within residential neighbourhoods. York Region does not currently have in place any designated dangerous goods movement routes or policies. The transport of dangerous goods by commercial vehicles however lies mainly on the 400-series highways across the GTA and the CN York rail line. Radioactive goods are primarily transported through air travel.
3.3 IMPACTS ON RESIDENTIAL AREAS Trucks have other deleterious effects on the landscape. Commercial vehicles transporting goods via highway and arterial roadway routes cause air pollution arising from vehicle emissions. Noise pollution is related to the speed, size and manoeuvring of vehicles and is thus considerable on roads heavily travelled by trucks. Combined, the air and noise pollution can thereby cause harmful effects on residential neighbourhoods.
Truck generators that have the most notable impacts on adjacent residential neighbourhoods are industrial areas located in close proximity and aggregate resource areas located throughout York Region. In light of this, local residents have sought truck restrictions or complete truck bans on sections of 9th Line and Woodbine Avenue in Markham and Islington Avenue and Langstaff Road in Vaughan. However, the current Regional policy is that Regional roads are intended to carry all forms of traffic – truck bans would limit the function of the road and thus conflicts with the Regional policy. In addition, although truck bans would likely appease the local residents, they could result in increased volumes on alternative links thereby transferring the problem elsewhere.
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Major industrial areas throughout York Region and the adjacent residential developments are identified in Table 2 and illustrated in Figure 1. Table 2: Major Industrial Areas in York Region Adjacent Residential Industrial Area Municipality Development 1 Newmarket Industrial Area Newmarket Woodland Hills (to west) 2 Aurora East Industrial Area Aurora Hills of St. Andrews (to west) 3 Weston-400 North Industrial Area Vaughan Maple (to north) Weston-400 Industrial Park Concord (to east) Keele Industrial Area Woodbridge (to west) Fernstaff North Industrial Area Tudor Industrial Area CN Freight Yard 4 Keele Valley Landfill Vaughan Maple (to west) Maple Industrial Area 5 Highway 427 West Industrial Area Vaughan Woodbridge (to east) Highway 427 East Industrial Area West Woodbridge Industrial Area Steeles/Martin Grove Industrial Area Martin Grove/Highway 407 Ind. Area 6 Steeles West Industrial Park Vaughan York University (to south) Adesso Industrial Park North York (to south) Steeles East Industrial Park 7 Headford North Industrial Area Richmond Hill Doncrest Headford Industrial Area Bayview Hill Beaver Creek Commerce Valley Markham Leichcroft Woodbine North Industrial Area Markham Cachet Cathedral Industrial Area Victoria Square 8 Elgin Mills Industrial Area Richmond Hill Elgin Mills Newkirk Bayview North 9 Industrial Parkway North Ind Area Aurora Hills of St. Andrews Industry Street/Mary Street Ind Area Aurora Country Aurora Historic Industrial Area South Aurora Industrial Area 10 Bayview Northeast Industrial Area Aurora Magna Lands 11 Woodbine Markham Brown’s Corner 12 Markham Underwood Milliken Don Mills Hagerman Corners German Mills
In 1998, 40 aggregate pits were licensed by the Ministry of Natural Resources in York Region, most of the sites located within the Oak Ridges Moraine. Major aggregate extraction activities are located along Bloomington Road in the Town of Whitchurch- Stouffville, where quarries are located near McCowan and Markham Roads. As such, truck traffic associated with the excavation and haulage of aggregates is focussed on Bloomington Road and Highway 404. However, as aggregate resources are used primarily in the construction industry, for asphalt and landfill purposes, activities that occur throughout York Region, the impacts of aggregate vehicles extend far beyond the immediate quarry area. In addition, the York Region road network is also used by trucks
York Region Policy Paper No. 5 Transportation Master Plan Goods Movement & the Economy 1 Hwy 400 2
9
10 Hwy 404
4 8 7 11 Hwy 7 3 Hwy 407 5
12 6
Major Industrial Areas 1. Newmarket Industrial Area 7. Headford North, Headforth, Beaver Creek, Commerce Valley, 2. Aurora East Industrial Area Leichcroft, Woodbine North & Cathedral Industrial Areas 3. Weston-400 North, Weston-400, Keele, Fernstaff North & 8. Elgin Mills & Newkirk Industrial Areas Tudor Industrial Areas & CN Freight Yard 9. Industrial Parkway North, Industry Street/Mary Street, Aurora 4. Keele Valley Landfill & Maple Industrial Area Historical & South Aurora Industrial Area 5. Highway 427, West Woodbridge & Martin Grove Industrial 10. Bayview North and magna Lands Areas 11. Woodbine 6. Steeles West, Steeles East & Adesso Industrial Parks 12. Don Mills FIGURE 1
Policy Paper No. 5: Goods Movement & the Economy Major Industrial Areas in York Region Page 6 of 21 transport aggregate material from pits located in the neighbouring regions of Durham and Peel. 3.4 WEAR & TEAR ON THE ROAD SYSTEM Heavy trucks and commercial vehicles used to transport goods throughout the GTA can have harsh impacts on the condition of the highway and arterial road network. Heavier vehicle weights, typical of large trucks, have a greater impact on the physical pavement structure as compared to the much lighter weights typical of passenger vehicles. Although the winter climate found in Ontario to a large degree affects the condition of roads, commercial vehicle weights cause persistent deterioration of road surfaces as well. Rutting of the road pavement has been observed along the aggregate haul routes found along Bloomington Sideroad, and other Regional roads. Generally speaking, truck traffic accounts for approximately 6% of traffic on Regional roads in York Region, where 4% comprises heavy truck volumes and 2% comprises medium size truck volumes. The percentage of truck traffic is higher in the Bloomington Road corridor, and across Highway 7 in the City of Vaughan in proximity to industrial employment areas. As such, the Provincial and local levels of government need to set aside adequate funds to cover the maintenance and rehabilitation of highways and Regional roads that are used extensively for the movement of goods across York Region and the GTA.
3.5 TOLLS ON HIGHWAY 407 Highway 407 currently extends 69km across the top of the GTA, from Highway 403 in the west to Highway 48 (Markham Road) in the east. It has a four lane cross-section, except between Highway 10 and McCowan Road where it has a 6 lane cross-section. Highway 407 has the capability of being expanded to 10 lanes to accommodate future traffic needs.
Based on its strategic location relative to freight centres (eg. areas that generate and attract the majority of goods' movements), and due to linkages with Highways 401, 410, 427, 400 and 404, Highway 407 plays a significant role in serving goods movement trips. In addition to serving those trips within the GTA, Highway 407 also serves external trips that originate or terminate in the GTA, or pass through the GTA completely. It is further recognized that Highway 407 will play an increasingly important role once it is extended both easterly (15km to Brock Road in Pickering) and westerly (24km to the Freeman Interchange in Burlington), thus providing additional alternative highway facilities through the GTA and through York Region (Highway 407 is seen as an alternative to Highway 7, the key east-west link through York Region). In addition, the easterly extension will assist with sustaining and encouraging further industrial development in the Town of Markham and beyond.
However, it is also recognized that the price to travel Highway 407 has a ceiling, particularly for commercial trucks (ie. at a certain price, motorists will refuse to travel on Highway 407). The current toll rates for commercial traffic are seen as excessive by the industry: for single unit trucks 21¢/km day, 10¢/km night; multiple unit trucks 31.5¢/km day, 15¢/km night. A $25 additional charge per trip is assessed to commercial vehicles without transponders, in addition to possible fines, as transponders are mandatory for commercial vehicles. Based on the fully completed length of Highway 407 (108km), the annual cost (based on 220 working days) of a tractor-trailer completing a round trip each working day on the highway is approximately $15,000. Such uneconomic pricing has driven truck traffic away from Highway 407, reducing its economic viability and thus placing an increased burden on the toll-free alternatives. To attract the goods
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movement industry to Highway 407, volume discounts, fleet rates and a general lowering of the rates must be introduced. It must also be recognized that through the use of road tolls, the operators of Highway 407 have the ability to regulate the demand for the road capacity. At present, the tolls for trucks are 2 and 3 times that of passenger cars (cars 10.5¢/km day, 5¢/km night). The tolls for commercial vehicles could be reduced thus increasing their overall presence on the road system. Should traffic volumes on Highway 407 approach or exceed its capacity, the tolls for passenger cars could be increased, thereby “pricing the cars off the road” and thus increasing the availability of road capacity for goods movement. In essence, the movement of goods and services could be significantly improved through this corridor without the need to physically designate commercial vehicle lanes.
However, it is also recognized that Highway 407 is privately owned and operated and thus any modifications to the current toll structure must realize equal if not increased operating revenues to the owners. In other words, the toll revenue that is lost by pricing cars of the road must be recovered through increased truck activity, particularly if commercial tolls are to be reduced.
3.6 E-COMMERCE E-commerce activities have allowed for purchasing goods over the internet (eg. on-line ordering and delivery of such goods as groceries, fast foods, retail and service products). This can serve to decrease discretionary trips by consumers to shopping malls and other retail or commercial outlets. However, counteracting this decrease in trips, goods purchased over the internet are then required to be shipped to the consumer by commercial trucks (most likely light trucks). This emerging trend, which is forecast to increase in the future, may account for an increase in truck traffic on the arterial road and expressway networks of the GTA and York Region, contributing to further traffic congestion by commercial vehicles.
4.0 YORK REGION OFFICIAL PLAN POLICIES
The York Region Official Plan recognizes the significance of goods movement for the Region’s economy as “the safe and efficient movement of goods by either rail or a road network is an important component of an economic strategy.” The Official Plan identifies the objective of facilitating goods movement, improving the level of safety and minimizing risks associated with the transportation of dangerous goods.
Several policies are outlined in the Official Plan regarding a comprehensible and efficient strategy for goods movement within York Region. A well-organized strategy to provide efficient movement of goods within the Region will help to maintain a strong economy and can provide for expansion of York Region’s economy in the future. Specific policies include: S to ensure that municipal official and secondary plans provide road and rail services for employment areas where such facilities will be required; S to work with other levels of government, agencies and the private sector to minimize risks and ensure the safe and efficient movement of goods by rail or road; S to support a safe and efficient railway network by:
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S recognizing the importance of the Region’s rail classification facilities as key components of the rail network; S securing grade separation of railways and major roads, where warranted; S directing hazardous goods movements to rail lines outside urban areas, where possible; S ensuring that noise, vibration and safety issues are addressed for land uses adjacent to railway corridors and terminal facilities; S encouraging rail operators to place greater emphasis on improving the technology for the design and operation of railway facilities and improving the maintenance and inspection of these facilities; S to encourage the location of activities that require heavy truck traffic to areas near or adjacent to freeways and major arterials; S to provide for a truck goods movement network in the Region which connects to adjacent municipalities and which utilizes provincial highways and the regional arterial road network; S to encourage the protection of abandoned railway rights-of-way for other uses; and S to discourage truck routes on local roads in residential neighbourhoods in order to protect residents from noise and emission pollution.
Despite the above Official Plan policies, York Region does not have a designated truck route network, although some routes within the Region are identified as “alternative truck routes”. These alternative truck routes generally provide guidance to heavy trucks and allow them to bypass sensitive areas (eg. downtown cores). Specific roads/links identified as such include: S Mulock Drive as an alternative to Davis Drive to travel between Highway 404 and 400 thus bypassing Newmarket; S Unionville bypass (Kennedy Road); S Industrial Parkway in Aurora; S Newkirk Road in Richmond Hill as an alternative to Yonge Street; S McNaughton Road in Vaughan (constructed primarily for truck traffic given predominance of heavy industry in the immediate area); and S new Markham bypass to be constructed as a bypass of Main Street Markham.
As at that Regional level, the local municipalities have not established designated truck routes. Rather, they have identified certain links upon which truck traffic is not permitted; truck traffic is thus permitted on all other routes (eg. all roads can in essence be considered truck routes).
5.0 RELEVANT EXPERIENCE ELSEWHERE
Commercial truck traffic movement is an issue that affects all concentrated urban areas. Other cities and regions in Canada have addressed goods movement in their Transportation Master Plans or through other measures. Examples of policies and programs regarding goods movement in other municipalities are outlined as follows:
5.1 EDMONTON, ALBERTA The Edmonton Transportation Planning Study addresses the long term transportation needs of the community, including the City’s truck route system. The existing truck route system designates specific arterial roadways for use by trucks; truck traffic must remain
York Region Policy Paper No. 5 Transportation Master Plan Goods Movement & the Economy Page 9 of 21 on the designated links for any trip that originates or is destined within the City limits. Trucks may deviate from the truck route system to complete pick-ups or deliveries, but must do so in the most expedient manner possible via the shortest distance from a truck route. Dangerous goods routes are identified whereby trucks carrying hazardous goods must adhere to these designated routes. Such trucks must remain on the designated dangerous goods system unless they are making pickups or deliveries. In addition, the transport of dangerous goods into and out of the downtown core is limited to the hours of 6:00 pm and 6:00 am only unless a special permit is issued from the Fire Department.
The truck routing system conflicts with the interests of several resident groups and as such a new routing system is required. The Transportation Planning Study identifies that the challenge is to develop innovative strategies to acknowledge the desires of community groups to minimize the impact of increased commercial travel (namely truck traffic), while addressing industry needs and expectations to provide efficient and flexible goods movement services. The specific nature of the problem is as follows: S limited space exists on a number of existing truck routes and thus they cannot be further expanded to provide more effective and efficient operations (recognizing that designated truck routes serve non-truck traffic as well); S the existing system poses coverage imbalance in the designation of truck routes; S the attractiveness of certain truck routes is sometimes off-set by the lack of continuity or network restrictiveness; S people are becoming more concerned with truck route operations from a safety, environmental and land use compatibility perspective; and S the trucking industry is facing increased financial constraints.
5.2 VANCOUVER, BRITISH COLUMBIA Like Edmonton, the City of Vancouver also has a designated network of truck routes, the principle of which is to disperse truck movements over a relatively large number of arterials so that the impact of truck traffic does not influence one single area of the city. Goods movement in the City is dependent upon the truck route network and good rail access, which work together with land use policies to preserve space for city-serving industrial activities. However, due to a number of factors, such as grade, major truck destinations and ease of using a particular route, truck traffic is not evenly distributed. In an effort to reduce the adverse impacts of trucks on neighbourhoods, the City of Vancouver is investigating stricter enforcement of traffic regulations, restricted hours of truck movement overnight in some residential areas and mandatory truck access plans during major construction projects.
As the region grows, so will the demand for goods movement on city streets. Containing the growth of car use will be a major factor in providing space on the road network for commercial vehicles. In the longer term, in some instances, priority access to the road network may be needed to maintain an efficient goods movement system. The safety and liveability of neighbourhoods needs to be balanced with the needs of efficient goods movement. A number of the key transportation plan policies adopted by the City, as they relate to goods movement, include: S the City will work to ensure the quality of access for goods movement is maintained; S the existing truck route network will be maintained largely unchanged to continue to provide for movement of heavy trucks; .
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S parking and unloading of trucks in the downtown will continue to be reviewed with the intent of improving the use of downtown commercial lanes for commercial vehicles and businesses; S warehousing and servicing for the city and downtown are best located close to the businesses which rely on them to help minimize truck traffic (the importance of the city industrial areas as the prime location for these functions is recognized, and they will be retained for these purposes); and S the impacts of heavy trucks on neighbourhoods will be addressed where practicable by such measures as, stricter enforcement of traffic regulations, time restrictions on some routes, truck movement plans for major truck generators, and roadside mitigation where practical opportunities exist.
5.3 REGION OF OTTAWA–CARLETON, ONTARIO The Regional Municipality of Ottawa-Carleton (RMOC) recently completed a review of their 1994 Official Plan, in conjunction with the development of a Transportation Master Plan that in part addresses goods movement and commercial truck traffic. As with other heavily urbanized areas, commercial truck traffic comprises the dominant mode for goods movement within the Region, at a much higher frequency than goods movement by rail or air travel.
In completing the study, problem areas cited by the trucking industry were determined, as follows: S peak hour traffic volumes and ensuing congestion, particularly in the downtown areas; S seasonal load restrictions on certain RMOC designated truck routes; S hours of operations by-laws vary between local municipalities; S a lack of loading zones in the downtown areas, particularly during peak periods; and S the Region’s “one-block” trucking policy whereby heavy trucks are only allowed to travel one block off trucking routes into residential areas which leads to circuitous trips (it was suggested with proof of delivery, more direct routing be permitted).
The movement of dangerous goods in the RMOC is mainly contained to transport of fuel and oil. Considered as “light” industrial goods, this does not warrant the designation of dangerous goods movement routes. In fact, the Region’s study states that the designation of specific routes for dangerous goods could be detrimental by concentrating a transportation risk.
5.4 SEATTLE, WASHINGTON The City of Seattle commissioned a study to compile existing policies related to the movement of freight and goods through the city (TranSystems, 1999). The study identified major freight mobility concerns that required the expansion or alteration of existing policies and identified the basis for making new policy recommendations. The action strategies recommended to address system deficiencies and concerns are described below.
Traffic Congestion Management S encourage goods pick-up and delivery in off-peak hours to the extent possible among affected businesses; and S encourage modal separations of trucks, automobiles and trains to reduce traffic conflicts.
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Curb Space Limitations S encourage the use of smaller trucks for local pick-ups and deliveries; and S regulate commercial curb parking so that trucks performing pick-ups and deliveries can utilize curb space. Truck Parking Access S provide the necessary infrastructure and facilities for interim truck parking and storage; and S encourage rapid truck loading and unloading at warehouses, businesses and factories.
Traffic Operational Concerns S maintain suitable limitations on truck sizes and weights along specific streets and roads with larger trucks; and S encourage the optimization of street signs, signals and devices for rapid traffic flow.
Central Transfer Terminals S encourage the transfer of freight and goods between large and small trucks at remote terminals.
5.5 NEW JERSEY The New Jersey Turnpike is a 190km (118 mile) toll road extending from Philadelphia to New York City. In March 1991, the New Jersey Turnpike Authority increased tolls for trucks by 100%. The trucking industry stated they could not afford to use the road at this price and they didn't. The importance of the trucking industry to the financial viability of the turnpike became self-evident. In December 1995, the executive director for the toll road declared the trucking industry's presence "as crucial to the toll road's ability to stabilize its finances." Modifications to the tolling structure were made to include the option of volume discounts for trucks thus improving the pricing and marketing for truck traffic. Current rates for use of the turnpike are approximately 9.5¢/km ($18.20 for 190km trip), far less than the 31.5¢/km charged on Highway 407.
6.0 RANGE OF POLICY DIRECTIONS
The range of policy directions that can further improve the movement of goods and services through the GTA and York Region can be categorized into three broad areas: S expand the current freeway network to significantly increase overall capacity; S implement traffic management schemes to give priority to truck movements or otherwise improve their operating efficiency, particularly during peak periods; and S encourage shifts in delivery times and in modes of transportation, both commercial and non-commercial travel to reduce competition for peak period road capacity.
6.1 EXPAND FREEWAY NETWORK As illustrated in Figure 2, an extensive goods movement network exists to serve York Region and the GTA, comprised of key freeways/expressways (including planned extensions by MTO), arterial roadways, railways and airports (within York Region, the focus is on the first three). However, the same links that comprise the goods movement network are also extensively used by non-truck traffic, particularly commuter traffic
York Region Policy Paper No. 5 Transportation Master Plan Goods Movement & the Economy Brock Georgina
a l a B
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Source: Goods & Services Movement Strategy: Phase 1 Study - Interim Report #1: A Description of Goods Movement in the GTA (draft). Prepared by IBI Group for GTSB, September 26, 2000 FIGURE 2
Policy Paper No. 5: Goods Movement & the Economy Long Term Goods Movement Network Page 12 of 21 during the peak hour periods when the total traffic volumes are greatest. In response to this, the obvious solution is to build new roads. An expanded road system (as indicated in Figure 2) can aid in improving the road transportation network available for the goods movement industry by creating a more comprehensive and efficient road network, and by reducing traffic congestion in certain parts of York Region and the GTA. Examples of needed freeway expansion include: S extension of Highway 407 west into Hamilton-Wentworth Region, and east into Durham Region and beyond; S extension of Highway 427 to accommodate future growth in the adjacent development areas; S further extension of Highway 404 north from Newmarket (the Ministry of Transportation and the Province of Ontario have recently reported a $37 million investment to extend Highway 404 north from Davis Drive to Green Lane/Herald Road); S connecting Highways 400 and 404 through northern York Region; and S expansion of lanes on the above highways and other highways within the GTA.
However, although building new facilities and further expanding those that are most heavily utilized would increase available capacity, on its own this may not be the optimal solution for a number of reasons. First, building new roads alone would simply attract more drivers (“build it and they will come”) thus failing to provide any relief to existing congestion levels. Second, opportunities for widenings or extensions to existing links are relatively limited, particularly in the built up areas. As such, in addition to any road expansions, due consideration should also be given to reducing the competition for road space between commercial traffic and motorists through such things as increased traffic management programs and shifts in modes of travel.
6.2 INCREASED TRAFFIC MANAGEMENT As mentioned, increased traffic management programs can be implemented to further improve goods movement through York Region. Such programs can be specifically targeted at commercial movements and thus provide direct benefits, or alternatively, focus on non-commercial traffic for in-direct benefits. As the focus of this paper is on goods movement, only those initiatives focussed on goods movement will be discussed. Further information with respect to additional non-commercial traffic management initiatives are presented in Policy Paper No. 2: Transportation System Management and Intelligent Transportation Systems.
6.2.1 Designated Truck Routes In order to provide for the safe, effective and efficient movement of goods and services within and through York Region, truck routes can be designated to: S provide efficient access to commercial and institutional precincts; S minimize travel routes, improve network continuity, accessibility and efficiency, and improve truck operations and safety; S match truck geometry and weight to infrastructure geometry and carrying capacity; S reduce network restrictiveness and improve network compatibility with adjacent land uses; S direct truck movement to the major arterial system where roadway capacity is greatest; S minimize the intrusion of large trucks into residential and environmentally sensitive areas; and
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S continue to facilitate the delivery of goods along commercial streets, reserving street parking for this purpose during specific hours of the day where off-street facilities are not feasible.
As with truck routes in other regions, truck traffic should remain on the designated links, deviating only at points of pick-up and delivery.
The purpose of designated truck routes is to focus truck activity within certain travel corridors and thus limit the number of trucks on neighbouring roads (particularly local roads). The obvious drawback to this is that truck activities on the designated truck routes would increase, thereby intensifying the local impacts (eg. pollution, noise, wear and tear, etc.) along the route.
As previously indicated in Chapter 4.0 York Region Official Plan Policies, the current York Region policy is not to designate truck routes, but rather to designate “alternative routes”. As such, a change of policy would be required should designated truck routes be favoured.
6.2.2 Designated Truck Lanes As is common practice with high occupancy vehicles (HOVs), travel lanes through key goods movement corridors and within high truck traffic areas (eg. intermodal facilities) can be designated as “truck-only” lanes. On freeways, the implementation of truck lanes would significantly reduce the weaving interactions between cars and trucks, as motorists jockey for position, and therefore reduce the potential for accidents. In addition, the flow and operation of commercial vehicles would be expected to improve given the uniform operating characteristics of trucks (trucks tend to operate at more uniform speeds as compared to cars, are less likely to speed and can follow at closer distances as compared to mixed traffic operations). Increased flows and improved operations could also serve to decrease the environmental effects and air pollution associated with truck traffic as vehicle emissions are reduced when trucks movements are uninterrupted.
However, on arterial roadways the effectiveness of the truck lanes will be dictated by the overall road network and as such, the benefits are not expected to be as great as compared to freeway operations. Although operations are expected to improve through mid-block locations (ie. between intersections), goods movement will still be restricted by intersection operations where commercial and non-commercial traffic must compete for road space. This is similar to the operations of HOV lanes and can only be remedied through additional intersection priority measures.
Although the designation of truck-only lanes is likely to improve the goods movement through the GTA and York Region, it would effectively reduce the number of lanes available to other vehicles. In most cases, although significant, the amount of truck traffic does not warrant a single lane all to itself; excess capacity within the truck lanes would occur. Simultaneously, the demand for the remaining lanes would increase as the number of lanes, and hence capacity, available to non-commercial travel would decrease. The public are likely to observe a truck lane that operates half-empty while the remaining lanes experience severe congestion levels, a scenario that would not be ideal to any non-commercial traveller.
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Provided that sufficient capacity exists, reserved truck lanes could be combined with HOV lanes to increase the demand for the lane and better utilize its capacity. However, this is likely to have further ramifications given the interaction between trucks, buses and high occupancy passenger cars. Alternatively, such lanes could be restricted to HOV use during the peak periods and available for truck use during the remaining non-peak periods.
6.2.3 Intelligent Transportation System (ITS) Applications A recent study conducted by Sabounghi & Associates and Delcan (1999), defines ITS “as the application of advanced information processing, communications, sensing and control technologies to improve the way in which ground transportation systems are designed, built, managed, and operated”. ITS is refined into subsystems which include Advanced Traffic Management Systems (ATMS), Advanced Traveller Information Systems (ATIS), Advanced Public Transportation Systems (APTS), Advanced Rural Transportation Systems (ARTS), Commercial Vehicle Operations (CVO), Advanced Vehicle Control & Safety Systems (AVCSS), and Automated Highway Systems (AHS). Most of these subsystems must interact with each other to yield an integrated solution.
The area of greatest potential for ITS to improve urban goods movement is in the application of ATMS and CVO. ATMS would provide the operators with real time information regarding congested areas, trip times via alternative routing, accident sites to avoid and therefore address some of the problems facing goods movement within urban areas. CVO builds on ATMS and other ITS systems in providing the services and associated benefits as outlined in Table 3 (Sabounghi & Associates and Delcan, 1999).
Table 3: ITS Applications to Improve Commercial Truck Movement
Commercial Vehicle Electronic S Enables transponder-equipped trucks to have cargo Clearance customs clearance, driver immigration clearance, safety status, carrier credentials, and weight checked at mainline speeds, minimizing stops; this application includes both provincial/ state highway weigh stations and border crossings Automated Roadside Safety S Facilitates roadside inspections by accessing the Inspection safety performance records of carriers, vehicles, and drivers; and eventually, access the on-board safety monitoring system On-Board Safety Monitoring S Senses and monitors the safety status of a commercial vehicle, cargo, and driver at mainline speeds Electronic Data Interchange S Provides electronic communication between shipper, (EDI) carrier, governments, and service providers; and facilitates commercial vehicle administrative processes, and commercial fleet management Commercial Vehicle S Provides electronic purchasing of credentials and Administrative Process automated mileage and fuel reporting and auditing, reducing the cost for collecting data on mileage and fuel purchased within each province and state Dangerous Goods (Hazardous S Provides immediate notification of an incident and Material) Incident Response the description of dangerous goods involved Commercial Fleet Management S Provides communications between drivers, dispatchers, and inter-modal clearance transportation providers, improving the reliability and efficiency of
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carrier pickup-and-delivery operations Road Weather Information S Provides the driver with information related to Systems (RWIS) microclimate weather conditions in the immediate road ahead A number of the above systems are currently in place throughout Canada and the United States. Such programs include: S COMPASS – This system reduces the impacts of both recurring and non-recurring congestion on Highway 401 through computerized data acquisition and processing, incident detection and management, and dissemination of traffic information to police and travellers. S HELP (Heavy Vehicle Electronic License Plate) - The goal is to allow a truck equipped with a transponder to drive through the entire network without stopping at weigh stations or ports of entry (a total of 40 sites through the US and British Columbia are employed).
S AVION/Advantage I-75 - The objective of the Project is to automate inspection control systems for weight, safety, cargo and license verifications, and was set up with the intention of moving freight with as minimum a delay as possible. Advantage I-75 involves 22 weigh stations along the I-75 corridor in the United States and 7 weigh stations along Ontario's Highway 401.
The successful implementation of the above projects has illustrated the benefits of ITS systems to goods movement. However, there are a number of barriers to ITS deployment that must be overcome before full benefits can be realized. These barriers can be categorized as issues affecting industry (most of the mentioned initiatives must be implemented by the trucking industry), the role of government, and standards development and include the following (Sabounghi & Associates and Delcan, 1999): S cost of investment in technology; S knowledge of ITS; S privacy issues; S resistance to change; S commitment of all levels of government and the trucking industry; S awareness and acceptance of communities; and S lack of industry standards that makes it difficult if not impossible to integrate various complementary systems.
6.2.4 Changes to Regulations Changes to current regulations may be required to implement traffic management programs, such as the implementation of priority lanes. Presently there are few regulations with regards to the movement of goods across the Region. The creation of designated truck routes and dangerous goods movement routes may be necessary to realize efficient and effective flows of commercial vehicles through and within the GTA and York Region.
6.3 FOSTER CHANGES IN TRAVEL MODES AND TIME OF TRAVEL With respect to the mode of travel, benefits to the movement of goods and services can be achieved through changing the mode by which goods are transferred and the time they are delivered/transported, and by changing the mode employed by non-commercial travellers. Again, the focus will be on the initiatives geared towards goods movement. Suffice it to say however, that for non-commercial travel, encouraging public transit as
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opposed to the private automobile will effectively increase the available road capacity for goods movement; a single bus is equivalent to approximately 30 cars. From a capacity perspective, reserved bus lanes have 4-5 times the capacity as standard travel lanes whereas subway capacity can exceed 50 times that of a travel lane. 6.3.1 Modal Shift A modal shift from road transport of commercial goods to transporting goods via rail and air travel can serve to decrease traffic congestion on the GTA’s highway and Regional road network. Heavy and medium-duty commercial vehicles have amplified the traffic congestion found on the highway network traversing York Region, particularly along Highways 400 and 404, and along Highway 401 as it passes through the boundaries of the urban core of the GTA. Traditional forms of goods movement, such as rail travel, and more modern forms, such as air travel, can ease congestion found on the GTA’s road network. As illustrated in Figure 2, the GTA has an extensive rail freight system – the main cross-Canada freight routes for both CN and CPR transverse the GTA (IBI Group, 2000). Within York Region, CN operates two key freight lines. The Bala subdivision, CN’s main line to the north and west, extends north via the east side of Lake Simcoe whereas the York subdivision is the main east-west line providing connections to Windsor, Detroit, Chicago and Halifax. CPR’s Mactier subdivision is also located extensively within York Region, extending from Toronto to serve areas to the north and west. Although road travel will still be needed in most cases to transport goods from the rail and air freight facilities to the final destination, the length and duration of the trips would be significantly reduced and could therefore reduce the volume of commercial vehicles present on many sections of highways and arterial roads.
6.3.2 Intermodal Travel The trend in goods movement is to focus on the integration of modes of transportation into a door-to-door freight service, namely trucking and rail. Trucking has become the dominant mode because it provides flexible, efficient, reliable and timely service required by most shipping companies. Trucking dominates in the short-distance, time sensitive, small shipment marketplace. It is estimated that more than 95% of the goods moved within Ontario depend on truck transportation, either solely (70-75%), or as part of a truck-rail intermodal shipment (OTA, 1999). Rail, on the other hand, dominates in the long-distance, bulk commodity marketplace, where trucks are less efficient and where transit times are less of a concern. Trucking and rail, for the most part, are not in the same business and are not interchangeable parts. However, by combining the best that trucks have to offer with the best that rail has to offer, a more efficient means of goods movement can often be achieved through intermodal travel. Although shipping by rail or air may not be as efficient or flexible as truck travel, by removing long-distance hauls from the congested highway network, time and cost savings and greater reliability may be realized in compensation.
Intermodal goods movement refers to the transportation of unitized freight loaded in a container or truck trailer in a move that uses at least two modes of transport. For example, a truck trailer moved via rail to York Region and via truck within York Region would be considered an intermodal goods movement. Faced with recent developments on safety issues, potential changes to the hours a driver is allowed behind the wheel and by the introduction of road pricing regimes, many trucking companies are looking at intermodal travel as a viable option. The new technologies introduced by railway companies will also off-set some of the railway inadequacies in terms of pricing, transit time and reliability by eliminating the need to process intermodal equipment at intermodal terminals. On the demand side, the shippers are generally not concerned
York Region Policy Paper No. 5 Transportation Master Plan Goods Movement & the Economy Page 17 of 21 with the mode used by a carrier, they are quite willing to move freight either on rubber tires, or steel wheels so long as the service is transparent to the customer. Intermodal delivery methods are viewed as a transportation product no different than the over-the- road product. At present, two intermodal terminals are operated within York Region. CPR operates the main Vaughan Intermodal Terminal, located at Highway 50 (north of Highway 7), which handles domestic and international continues. Likewise, CN operates an intermodal facility at the MacMillan Yard on Keele Street (north of Steeles Avenue) in Vaughan – approximately 400 trucks per day visit this site (IBI Group, 2000).
Within the GTA, the biggest opportunities for rail are probably in the intermodal sector, whereby goods manufactured in the surrounding area are assembled in the distribution centres and sent out to other locations across Canada. The use of intermodal travel for goods movement is expected to grow in the 6 to 8% per year range over the next several years (OTA, 1999). However, this is dependent upon the degree to which the required transportation services can be provided at an attractive price; the marketplace will determine the growth of intermodalism. It should also be recognized that intermodal goods movement is not an alternative for all, or most, truck shipments.
A 1990 study on shipper opinions of intermodal options, conducted by KPMG for the Ministry of Transportation stated:
"Significant service improvements combined with superior marketing efforts will be required if traffic volumes moving by rail intermodal are to increase measurably. Shippers find that trucks provide better door-to-door service and flexibility at competitive rates. The high service levels required by shippers such as just-in-time deliveries are much better served by truck transport."
While there have been significant improvements in intermodal service over the past 10 years, through such means as the introduction of double-stack, road-railers, iron highways, etc., one must recognize the limitations. Intermodal travel cannot compete with trucking in short-haul markets (under 750km); it still has difficulty serving just-in-time and especially exactly-in-time shipment needs; and shipper concerns over flexibility of schedules, winter shut-downs and equipment shortages persist.
6.3.3 Time of Travel During the peak periods of travel, freeways through the GTA operate at capacity – day in and day out – and thus result in considerable traffic congestion and travel delays. The occurrence of accidents and incidents further exacerbates the problem, thus resulting in further increased congestion. In an effort to combat this, the movement of goods should be encouraged to occur during the non-peak hour (the implementation of just-in-time delivery and the nature of certain goods will still require peak hour operations). Where feasible, trucks and deliveries should be scheduled during the early morning, mid-day or early evening periods. However, it is recognized that congestion is no longer a “peak hour” phenomena but rather extending in duration throughout the day. As such, the effectiveness of off-peak operations may be somewhat limited.
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7.0 MOST PROMISING DIRECTIONS FOR CHANGE
Truck travel on Ontario highways across the province is projected to increase to approximately 38 million vehicle-kilometres-travelled (vkt) by the year 2021, more than double the current estimates (Tardif, 1998). The fastest growth is expected in southwestern Ontario, including the GTA, where truck travel is expected to increase by 113%. In response to this projected growth, it will be necessary to implement measures to ensure that safe and efficient transport of goods can be provided and maintained.
The Greater Toronto Services Board (GTSB, 2000) has outlined several opportunities for more efficient access for goods movement that should be considered within York Region. These include: S improve connections between arterials and expressways; S protect of connections to intermodal freight facilities; S rationalize rail lines to consolidate key freight rail facilities on some lines; and S intensify public transit and intercity rail services on other lines (thus shifting demand from the private automobile to public transit).
A variety of infrastructure and technological improvements have also been recommended to support goods movement across the GTA. These measures, outlined as follows, can serve to render more efficient traffic flow, and in effect improve access and movement of goods: S priority lanes for commercial truck traffic; S improved off-street loading and parking facilities; S efficient incident management systems; S ITS initiatives aimed at disseminating road information to drivers; S improved freeway networks; S traffic management systems; and S streamlined activities for improved goods movement.
One last point to be considered in the planning for future goods movement strategies pertains to the value of goods being transported and the economic consequences of inefficient transportation systems. As stated by Mariano & Pike (2000):
“We need to begin to ask questions about the value of commodities in the traffic stream, economic consequences of a congested freight mobility system, factors affecting freight modal choices, the importance of the “reliable congestion”, opportunities to reduce or eliminate institutional barriers or inefficiencies, and many other questions.”
York Region Policy Paper No. 5 Transportation Master Plan Goods Movement & the Economy Bibliography Page 19 of 21
8.0 BIBLIOGRAPHY
Greater Toronto Services Board (GTSB), November 1999. Removing Roadblocks, A Summary of Recent Transportation Studies.
Greater Toronto Services Board (GTSB), January 2000. Removing Roadblocks, To Continued Economic Prosperity for the Greater Toronto Area, Ontario and Canada. A Strategic Transportation Plan for the GTA and Hamilton-Wentworth.
IBI Group, September 26, 2000. Goods and Movement Strategy: Phase 1 Study – Interim Report #1: A Description of Goods Movement in the GTA. Prepared for the Greater Toronto Services Board.
Mariano, Michael P. & Pike, Dan, 2000. Freight Mobility – Walking the Talk! Presented at the ITE 2000 Annual Meeting and Exhibit, Nashville, TN.
Ministry of Transportation (MTO), March 1998. Strategic Overview of Goods Movement in the GTA, Technical Report #9. Towards a Greater Toronto Area Transportation Plan.
Region of York, 1993. York Region Cordon Count Program.
Region of York, July 1999. Official Plan (Office Consolidation).
Region of York, 2000. Our Environment Our Home, York Region State of the Environment Report.
Ontario Trucking Association (OTA), 2000. http://www.ontruck.org/stats/docs/catalyst.htm
Ontario Trucking Association (OTA), 1999. http://www.ontruck.org/issues/docs/is99-0324-03.htm
Sabounghi & Associates and Delcan Corporation, November 1999. Study on ITS Applications within the Canadian Trucking Industry. Prepared For Transport Canada Surface Transportation Policy.
Tardif, R., 1998. Value of Goods Transported by Truck in Ontario. Canadian Transportation Research Forum 1998 Proceedings.
TransSystems Corporation Consultants, August 1999. A Review of Freight Mobility Action Strategies for the City of Seattle, City of Seattle Transportation.
1987 Metropolitan Toronto Goods Movement Study (TGM) – as referenced on Ontario Trucking Association website http://www.ontruck.org/submissions/1998/sub98-1126- 01.
1997 GTA Trip Time Travel Survey (TTT) – as referenced on Ontario Trucking Association website http://www.ontruck.org/submissions/1998/sub98-1126-01.
1997 Strategic Goods Movement Corridor Analysis (SGMC) – as referenced on Ontario Trucking Association website http://www.ontruck.org/submissions/1998/sub98-1126- 01.
York Region Policy Paper No. 5 Transportation Master Plan Goods Movement & the Economy TRANSPORTATION MASTER PLAN
Policy Paper No. 6
PEDESTRIANS & CYCLING
For Discussion Purposes Only
October 2000 TABLE OF CONTENTS
1.0 INTRODUCTION & BACKGROUND...... 1
2.0 CURRENT TRENDS AND ISSUES...... 1
2.1 Walking ...... 1 2.2 Cycling ...... 2
3.0 EXISTING YORK REGION POLICIES, PROGRAMS AND PRACTICES ...... 4
4.0 EXPERIENCES OF OTHER JURISDICTIONS ...... 8
4.1 Ontario Context ...... 8 4.2 Transportation Plans for Markham, Richmond Hill and Vaughan ...... 9 4.3 Official Plans for Aurora, East Gwillimbury, Georgina, King, Newmarket, and Whitchurch-Stouffville...... 9
5.0 POLICY OPTIONS AND IMPLICATIONS ...... 9
6.0 DIRECTIONS FOR CHANGE...... 12
7.0 BIBLIOGRAPHY...... 13
Prepared By: Marshall Macklin Monaghan October 2000
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1.0 INTRODUCTION & BACKGROUND
Walking is an integral component of almost all trips, and the relative importance of cycling is on the rise. However, the largest proportion of all travel is still made first by the private automobile and second by public transportation. It should not be surprising, therefore, that the majority of transportation plans do not provide significant guidance for the promotion, enhancement and design of walking or cycling facilities.
This paper reviews the current issues related to walking and cycling, policies, programs and practices in York Region, and experiences from other jurisdictions to identify policy options, implications and directions for change.
2.0 CURRENT TRENDS AND ISSUES
The following provides a brief overview of current walking and cycling issues and trends.
2.1 WALKING Walking is the most basic mode of transportation. In the Town of Markham, it was estimated that 10% of trips during the three hour AM peak period were made by pedestrians. Downtown origin and destination surveys show that, in most cities, about ninety percent of all internal trips within the central business district are by pedestrians. Given that almost every trip involves walking at some point, it is surprising that the needs of pedestrians are often overlooked in master transportation and land use planning.
Macro-scale plans, such as Official Plans, secondary plans and transportation master plans, generally concentrate on the movement of people and goods between distant origins and destinations. The majority of their recommendations, therefore, emphasize facilitating private automobile, truck and transit trips through capacity improvements. Recommendations for pedestrian movement are often general, supporting walking through other planning initiatives and design studies.
However, a pleasant walking environment can promote a large proportion of shorter distance trips to be taken as a pedestrian, as opposed to the private automobile. In addition, the pedestrian environment is highly related to transit use, since the vast majority of transit users are pedestrians at the point they access these facilities. Increased walking trips will generally reduce the amount of auto travel and provide a more vital community.
There are seven generally accepted principles to improve the pedestrian environment:
1. Safety – which implies reducing pedestrian-vehicle conflicts; 2. Security – which implies improving observation and visibility; 3. Convenience – which implies facilitating pedestrian flow; 4. Continuity – which implies direct and consistent routing; 5. Comfort – which implies protection from or moderation of inclement weather; 6. Coherence – which implies clearly conveying direction, function and purpose; and 7. Attractiveness – which implies creating an aesthetic and sensory pleasing walking experience.
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2.2 CYCLING Cycling has evolved to become a practical, cost effective, environmentally sensitive and healthy mode of transportation for both recreation and utilitarian purposes across North America. It is recognized as an integral and necessary part of a community’s transportation system and as an alternative to automobile use.
Across Ontario, recreational cycling is recognized as one of the top three recreational pursuits, having a 20% participation rate and estimated annual growth rate of 2.3% (Ministry of Citizenship, Culture and Recreation, 1998). In the City of Toronto, approximately 20% of the population cycle for utilitarian purposes such as getting to work, school, shopping, errands, etc., and 44% of the population cycle for recreational purposes to follow leisure and fitness pursuits (Decima Research Inc., 1999).
The demand for cycling and walking facilities is high in communities across Ontario. Municipalities such as Toronto, Ottawa, Brampton, Markham, London, Milton and Windsor, to name a few, are actively developing networks to encourage cycling and walking, and to lower reliance on the personal automobile.
At the provincial level, the Ontario Trails Council is promoting the integration of community and regional trail systems into a province-wide system to be known as the Ontario Trillium Trails Network. At the same time, a national trail system is being developed through the Trans Canada Trail Initiative.
The promotion of cycling has significant individual, societal, environmental and economic benefits.
2.2.1 Recreation, Health and Fitness Benefits Cycling provides an enjoyable, convenient and affordable means of exercise and recreation. The most effective fitness routines are moderate in intensity, individualized, and incorporated into our daily activities. Cycling can accomplish this and at the same time provide mobility.
In Ottawa, two-thirds of 1700 commuter cyclists surveyed in 1991 ranked health and fitness as the primary reason for cycling to work.
There are other health benefits in addition to the physical gains. Cycling can enhance one’s mental outlook and well-being, improve self-image, social relationships and increase self-reliance by instilling a sense of independence and freedom.
Trails pass though a variety of neighbourhoods helping to unite communities. They act as meeting places, and provide for informal interaction between people from a variety of backgrounds.
Trail projects (construction, operation, maintenance and promotion) can help to foster partnerships among individuals, government, local business and interest groups. There are many examples of successful private and public-sector partnerships that have developed as a result of the development of trails across the country, such as the Chrysler Greenway through Essex County.
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Our health system is shifting from protecting people from hazards in the environment to developing healthy environments in which people live. Evidence suggests that improved cycling facilities lead to higher participation rates. Increased physical activity such as walking, cycling and other trail related actives could help to reduce the risk of coronary heart disease. A more active population can, in turn, reduce the cost of medical care, decrease workplace absenteeism, maintain the independence of older adults and reduce the cost of institutional care.
The encouragement of cycling and walking can contribute to reduced urban and suburban dependence on the automobile, a target in healthy cities.
2.2.2 Transportation Efficiency Benefits Cycling is a popular recreational activity and a means of transportation that is efficient, affordable and accessible. For distances up to 10 km in urban areas, cycling is the fastest of all modes from door to door. The National Bicycle and Walking Study: Final Report (1994) shows that 25% of all trips are 1.5 km long or less, and over two-thirds are 8 km long or less in U.S. cities. Approximately 20% of all cycling trips involve travel to and from work in the U.S. This demonstrates the potential for increasing the number of trips by bicycle.
In Edmonton, a survey of 2400 cyclists in 1989 showed that 75% of the reported bicycle trips were for reasons other than recreation. Almost 20% of the cyclists surveyed rode all year round, indicating that winter cycling is viable.
Road improvements to increase the safety of cyclists can and should enhance the safety of other road users. For example, the U.S. Federal Highway Administration reports that paved shoulders on two-lane, rural roads have been shown to reduce run-off-the-road, head-on and sideswipe collisions by 30 to 40%. In addition, several municipalities have found that paved shoulders reduce maintenance costs related to shoulder deterioration, grading and snow plowing. One metre paved shoulder areas on Regional roads in York have been a policy since 1995.
Two major surveys conducted in the U.S. in 1994 (Richelieu Valley Tourism) and 1997 (Survey of Delaware Bicyclists) showed that 99% of all respondents said they cycled for recreation, fitness and health, 65 to 90% used the bicycle for touring and vacationing, and 40 to 50% used the bicycle for transportation. Many who have had a good experience cycling for recreation try cycling for utilitarian purposes.
2.2.3 Environmental Benefits Cycling is an energy-efficient, non-polluting mode of travel. Short distance, motor vehicle trips are the least fuel-efficient and generate the most pollution per kilometre. These trips have the greatest potential of being replaced by cycling trips and integrated cycling-transit trips. Shifting to these modes can mitigate ozone depletion, the greenhouse effect, ground-level air pollution, photochemical smog, acid rain and noise pollution. Bicycles take up fewer resources in their production and maintenance than motor vehicles, reducing the demand on materials and energy resources.
2.2.4 Economic Benefits Following significant investment in bicycle facilities, cities in industrialized countries have experienced dramatic increases in the level of cycling. For example, Copenhagen
York Region Policy Paper No. 6 Transportation Master Plan Pedestrians and Cycling Page 4 of 14 experienced a cycling increase of 50% in five years: Eugene, Oregon experienced an increase of 75%; and Toronto experienced an increase of 75% (New York City, 1997).
There is ample evidence that trails provide significant economic benefits for adjacent landowners and local businesses. Trails provide benefits to the local economy during both construction and operation. Trail construction results in direct benefits such as jobs, including the supply and installation of materials. Following construction, benefits emerge in the form of expenditures by trail users. A few examples include:
trails in New Brunswick employ around 1500 people for an average of 6 months per year; 70% of Bruce Trail users cite the trail as the main reason for visiting the area, and they spend an average of about $20.00 per user per visit within a 10km corridor on either side of the trail; the San Antonio Riverwalk is considered the anchor of the tourism industry in San Antonio, Texas, and contributes $1.2 billion annually to the local economy; in 1988, users of the Elroy-Sparta Trail in Wisconsin averaged expenditures of US$25.14 per day for trip-related expenses or over $1.2 million annually; more than 600,000 Americans took a bicycle vacation in 1985, and when travelling in a group spent $17 per day (camping), and $50 per day (staying in motels). Cyclists travelling alone spent an average of $22 per day (camping) and $60 per day (motels); and in Ontario, the Eastern Ontario Trails Alliance estimated that at the end of a ten year build-out period, 320 km of their system, constructed at a cost of $5.4 million will generate approximately $36 million in annual economic benefits in the communities through which it passes, and create / sustain over 1100 jobs.
3.0 EXISTING YORK REGION POLICIES, PROGRAMS AND PRACTICES
The following documents were reviewed to determine policies, programs and practices in York Region pertaining to cycling and walking:
York Region Vision 2021 Region of York Official Plan 1999 Official Plan Report Card 1998 York Region Report Card Regional Streets: Standards for Right-of-Way and Boulevards
The York Region 2021 vision statement recognizes the need to carefully balance population and economic growth with the need to protect the environment and create healthy, prosperous communities. With respect to transportation, the vision statement identifies the need to “link distinctive urban and rural communities.”
The Region of York Official Plan provides the planning framework to realize the 2021 vision. Goals, objectives and policies related to transportation, and specifically walking and cycling, are dispersed throughout the Plan. The most relevant sections are identified in Table 1.
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Table 1: Walking and Cycling Related Sections in the Region of York Official Plan
Reference Statement 4.1 Policies: Human 1. To ensure that public buildings and facilities are located and designed to Development be accessible to all and to be supportive of the community building, centres and corridors policies of this Plan. 2. To provide a safe walking and cycling environment for all members of the community, so that children, elderly people and others will be safe and will not be made to go unreasonable distances. 3. To link communities to each other and to places of employment, learning and other community activities with pedestrian bicycle and transit systems. 4. That the design and siting of buildings and their entrances encourage access to pedestrian, bicycle and transit systems. 11. To encourage the availability of access by walking, bicycling and transit to education, arts, culture and recreation facilities. 4.2 Policy: Cultural 9. To encourage access by walking, cycling and transit to historic core areas Heritage and to design vehicular access and parking areas that complement and preserve these cultural heritage areas. 5.2 Objective: Community To develop diverse, self-sufficient, accessible, safe, green, economically Building vibrant, pedestrian-oriented, accessible communities through excellence in planning and urban design. Policies: 7. To require the preparation of comprehensive secondary plans….based on the following: e) the distance to a transit stop of generally no more than 500 metres (a 5-10 minute walk) for 90% of the residents and no more than 200 metres for 50% of residents; i) a system of walkways and bicycle paths link the community internally and externally to other areas; j) the incorporation of the Regional Greenlands System into the community plan and the inclusion of pedestrian-accessible green space and local parks 5.3 Policies: Centres 2. That area municipalities shall have the primary responsibility for the preparation of plans for regional centres…that are consistent with the following: d) transit facilities should be easily accessible to pedestrians f) centres should be integrated with the local greenlands systems, including local parks, bicycle and pedestrian systems and local natural features g) centres should provide for pedestrian plazas, streets and/or parks 5. That area municipalities prepare plans for…urban centres that address the following criteria: a) criteria c) through i)….[d), f) and g) above]; 6. That plans for…local centres should meet the following criteria: f) promote a pedestrian environment… in keeping with Policy 5.2.11;
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Table 1: Walking and Cycling Related Sections in the Region of York Official Plan
Reference Statement 5.4 Policy: Corridors 3. That the development and redevelopment in the corridors address the following criteria: f) encourage pedestrian activity through the arrangement and design of a development and streetscaping; 5.5 Policy: Hamlets 4. That prior to endorsing a development proposal…that would have the effect of increasing the planned population of a hamlet up to 500 persons, the area municipality shall: a) prepare a secondary plan or detailed policies based on the consideration of Policy 5.3.2 (a) through (f) and (h) [bullets d), f) and g) are relevant to pedestrians and/or cycling] 6.1 Objective: The Road To ensure that roads are improved in a manner that is supportive of all modes Network of transportation including walking, cycling, automobile, transit and truck, and that minimizes conflicts between these different modes. Policies: 1. That the hierarchy of roads on Maps 8 and 9 be designated to support the Region’s proposed urban structure, including centres and corridors. These corridors are to be used by all forms of transportation where appropriate (pedestrian, cyclist, transit, automobiles, trucks) as well as public and private utilities…. 2. That the road widths identified on Map 8 are the necessary basic right-of- way widths for the regional road system. Additional width may be required for accommodating bicycles, sidewalks and landscaping where appropriate… 3. To continue to improve the York region road network identified on Maps 8 and 9 subject to the following: d) that all road improvement projects take into account the need and requirements of all forms of transportation including automobiles, transit vehicles, trucks, bicycles and pedestrians; e) that in identified centres and corridors, priority be given to the needs of transit, pedestrians and cyclists and the integration of adjacent land uses to promote these forms of transportation. 10. To require that development proposals that are likely to generate significant traffic include a transportation study so that their impact on the regional transportation system and surrounding land uses can be assessed. In addition to determining the impact of private vehicles, the transportation study should examine ways of encouraging all other forms of transportation such as transit, walking and cycling, and recommend necessary improvements…. 6.2 Policy: Transit 3. To achieve higher transit usage by supporting improvements in service, Network convenient access and good urban design. This includes but is not limited to the following: a) minimizing the walking distance to anticipated transit stops through such measures as the provision of walkways and more direct road
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Table 1: Walking and Cycling Related Sections in the Region of York Official Plan
Reference Statement patterns. In urban areas, the distance to a transit stop of generally no more that 500 metres (a 5-10 minute walk) for 90% of the residents and no more than 200 metres for 50% of residents; g) creating site plan control that gives priority to pedestrian access to transit over automobile access and parking in urban areas. 6.3 Objective: Cycling, To promote and facilitate walking, cycling and trails. Walking and Trails Policies: 1. To recognize the importance of cycling and walking as a form of transportation and to establish bicycle paths and walkways in conjunction with local municipalities. 2. To ensure the integration of bicycle path and walkway systems into the design of transportation facilities by including facilities such as protected bicycle storage areas at stations, places of employment and major community, institutional, educational, cultural and shopping locations. 3. To work with area municipalities in providing bicycle and pedestrian paths separated from the roadway on existing and proposed regional roads and utility corridors, parks and green spaces where appropriate. Where feasible, regional roads shall be adapted to provide safer travel for bicycles. 4. To interconnect walking trails and bicycle paths across the region in cooperation with area municipalities. 5. To recognize the importance of providing for bicycle and pedestrian safety and convenience and of protecting the quality of the existing pedestrian environment. 6. To promote the establishment of the Humber River-Oak Ridges Moraine- Duffin Creek trail loop in cooperation with the conservation authorities, the area municipalities and other organizations. 7. To promote the establishment of a Lake Simcoe shoreline trail using existing roadways and public rights-of-way as a base. 8. To promote the establishment of local trail loops using regional lands as a base and major river valley trails in cooperation with other public agencies. 9. To examine opportunities to use abandoned rail right-of-ways, utility corridors, and waterways for transportation, recreation and trails purposes.
From a policy perspective, the Official Plan adequately addresses the concepts of safety, accessibility and linkages for pedestrians and cyclists. However, the Official Plan policies address walking and cycling in more of a recreational context, particularly in the planning of communities, centres and hamlets. This concept is reinforced through policies that actively promote the creation of physically separated walking, cycling and road systems and the identification of only one trail network, the Oak Ridges Moraine Trail, across the Region.
The Standards for Right-of-Way and Boulevards reinforce the separate recreation system philosophy of the Official Plan. Of the twelve road types identified in this report, only two specifically include an option for bike lanes. For pedestrian facilities, the
York Region Policy Paper No. 6 Transportation Master Plan Pedestrians and Cycling Page 8 of 14 standards are more inclusive, although only 58% (7 of 12) of the road types specifically provide for pedestrian facilities. This separation philosophy is due, at least in part, to the fact that both sidewalks and bikeways are a local municipal responsibility.
It is interesting to note that the 1998 York Region Report Card identified the need to improve transit and residential design standards so that modes other than the private automobile were available. Similarly, through the 1999 Official Plan Report Card exercise, public concerns were raised in relation to walking safety for school aged children. This suggests there is a growing public desire within the Region for better integrated and safer walking and cycling systems.
4.0 EXPERIENCES OF OTHER JURISDICTIONS
The following provides a general overview of cycling and walking policies, programs and practices in other Ontario municipalities. In addition, a brief review of the cycling and walking directions contained within the transportation plans for Markham, Richmond Hill and Vaughan and the Official Plans of the other York Region lower tier municipalities is provided.
4.1 ONTARIO CONTEXT Every municipality recognizes the importance of walking and cycling through their policies, programs and practices. However, their approach to providing walking and cycling facilities varies greatly from one to another.
Mature urban areas place more emphasis on the importance of cycling and walking as a viable transportation mode. Consequently, their policies, programs and practices focus on developing an integrated transportation system, and expanding walking and cycling facilities.
For example, in Windsor it is policy that all forms of development be designed to accommodate pedestrian and cycling access. Sidewalks are required on both sides of all scenic drives and arterial and collector roads, and on at least one side of every local road. The Official Plan provides extensive urban design policies directed toward enhancing pedestrian access, safety and comfort. The City is also aggressively expanding its existing cycling network to encourage more commuter cyclists. In Toronto, the Directions Report for the new Official Plan and the corresponding Transportation Vision emphasize the need to have fewer and shorter vehicle trips, and traffic engineering and street designs that encourage walking and cycling.
In rapidly expanding municipalities, the emphasis is more on establishing a viable recreation network for cycling and walking, and a feeder service for public transportation. As a result, their policies, programs and practices tend to focus on developing recreational trail plans, while deferring the provision of cycling and walking facilities to the development approval process with limited guidance.
For example, Milton is in the process of defining a town-wide trail network that is largely geared toward recreational users. Its Official Plan does not specifically provide for sidewalks or cycling lanes within road rights-of-way, and refers the planning for such travel modes to secondary plans and plans of subdivision.
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4.2 TRANSPORTATION PLANS FOR MARKHAM, RICHMOND HILL AND VAUGHAN Some of the lower tier municipalities that are part of York Region have developed municipal-wide transportation plans. A comparative review of these plans illustrates the divergent approaches being taken toward enhancing pedestrian and cycling mobility across the Greater Toronto Area.
The Town of Markham’s Transportation Planning Study (1994) is generally transit focused, with a supportive pedestrian oriented urban structure. It employs a series of constraints on the transportation model results to recognize the influence of urban form and other policy issues that are critical to encouraging alternative travel modes, including walking and cycling. The plan includes a detailed series of policies and guidelines to enhance the pedestrian environment. Cycling, while promoted as a viable mode of transportation, was not comprehensively examined, and there is an absence of detailed policy direction for its enhancement.
The Town of Richmond Hill’s Transportation Planning Studies (1996 and 1998) are generally private automobile and transit-oriented. However, the 1996 plan does include a significant section to address cycling. A conceptual bicycle path network, objectives for the development of the network and a routing hierarchy are provided as guidance for a recommended master trail plan. Walking, while considered a part of the planned trail system, is not comprehensively planned.
The City of Vaughan’s Transportation Planning Study (1994) is generally private automobile and transit focused. However, it does include policies that actively encourage and/or require the provision of sidewalks and the accommodation of bike lanes.
4.3 OFFICIAL PLANS FOR AURORA, EAST GWILLIMBURY, GEORGINA, KING, NEWMARKET, AND WHITCHURCH-STOUFFVILLE The municipalities of Aurora, East Gwillimbury, Georgina, King, Newmarket and Whitchurch-Stouffville do not have municipal-wide transportation plans. Through a review of their Official Plans it is apparent that these municipalities generally support walking and cycling for predominately recreational purposes. However, none of these municipalities identify a municipal-wide trail or recreation network.
5.0 POLICY OPTIONS AND IMPLICATIONS
There are three general policy options for cycling and walking presented in Table 2.
Option 1 is based on the Transportation Association of Canada’s (TAC) new vision for urban transportation. This vision is premised on the belief that current trends are leading to urban transportation systems which do not meet needs and are not sustainable. In essence, TAC’s vision is for communities to have more mixed use, higher density development in nodes and along corridors to increase transit, walking and cycling. The policy implications of this option are policies, programs and practices that emphasize walking and cycling as a priority in the planning and design of communities and transportation systems.
York Region Policy Paper No. 6 Transportation Master Plan Pedestrians and Cycling Page 10 of 14
Table 2: Cycling and Walking Policy Options and Implications
Option Policy Implications Comments Walking Option 1 • increased densities and mixed land use to bring origins Realizing this option requires: Promote walking as and destinations closer together thereby increasing the • capital investment in upgrading existing the preferred mode potential for transit, walking and cycling trips. pedestrian facilities; for person trips. • design and construct public rights-of-way to actively • capital investment and stringent development encourage pedestrian use and not just motor vehicle requirements for the construction on new use (e.g. adequate provision and maintenance of inter- pedestrian facilities as a part of the up front connected sidewalks and footpaths). stages of development; • protection from inclement weather. • Regional and lower-tier Official Plan • adequate lighting for safety and security. amendments and incentives that actively • accessibility for the physically challenged. encourage mixed-use, high density • street level establishments close to the sidewalk. development; and • identification of a primary utilitarian and recreational • Long-term commitments to realize a pedestrian network in the Official Plan and/or secondary significant change in travel behaviour. plans. Option 2 • increase densities and mixed land uses only in selected Realizing this option requires: Promote walking in areas (e.g. nodes and corridors) • moderate capital investment in upgrading selected urbanized • design of public rights-of-way to accommodate existing pedestrian facilities areas and through a pedestrian use only where necessary • moderate capital investment and flexible recreational trail • adequate lighting for safety and security. development requirements for the system • accessibility for the physically challenged. construction of new pedestrian facilities • identification of a municipal-wide recreation network in • Regional and lower-tier Official Plan the Official Plan amendments to identify a planned recreation • identification of a primary utilitarian pedestrian network network in secondary plans • medium-long term commitment to realize a significant change in travel behaviour Option 3 • lower densities and separated homogeneous land uses. Realizing this option requires: Promote walking for • design of public rights-of-way to accommodate • low capital investment in pedestrian facilities leisure and pedestrian use only where necessary (e.g. shopping • short term commitment to realize modal split. recreation. areas, schools, etc.) • emphasize the development of recreational trails and paths. • adequate lighting for safety and security. • accessibility for the physically challenged. • identification of a recreation network in secondary plans
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Table 2: Cycling and Walking Policy Options and Implications
Option Policy Implications Comments Cycling Option 1 • increased densities and mixed land use to bring origins Realizing this option requires: Increase and destinations closer together thereby increasing the • high capital investment in upgrading existing opportunities for potential for transit, walking and cycling trips. cycling facilities; cycling as an • cycling lanes on the public right-of-way and separated • high capital investment and stringent optional mode of cycle networks. development requirements for the travel. • the needs of cyclists considered in the preparation of construction of new cycling facilities as a part community/neighbourhood plans. of up front stages of development; • storage facilities at transit stations and on transit • Regional and lower-tier Official Plan vehicles to encourage bike and ride. amendments and incentives that actively • storage facilities in the downtown core, suburban town encourage mixed-use, high density centres and other key locations. development and identify a cycling network; • provision of cycling facilities as a condition of and development. • Long-term commitments to realize a • identification of a primary utilitarian cycling network in significant change in travel behaviour. the Official Plan and secondary plans Option 2 • increase densities and mixed land uses only in selected Realizing this option requires: Provide cycling in areas (e.g. nodes and corridors) • moderate capital investment in upgrading selected urbanized • cycling paths and trails as a priority over on-street existing cycling facilities areas and through a facilities • moderate capital investment and flexible recreational trail • identification of a municipal-wide recreation network in development requirements for the system the Official Plan construction of new pedestrian facilities • Regional and lower-tier Official Plan amendments to identify a planned recreation network • medium-long term commitment to realize a significant change in travel behaviour Option 3 • lower densities and separated homogeneous land uses. Realizing this option requires: Promote cycling for • cycling paths and trails separated from public rights-of- • moderate capital investment in cycling leisure and way. facilities recreation pursuits. • the need of cyclists considered in the development of • short term commitment to realize modal split. parks and trail systems. • identification of a recreation network is secondary plans
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Option 2 is based on the premise that walking and cycling will support other more dominant modes of travel for utilitarian purposes and be promoted for recreational pursuits. The policy implications of this option are policies, programs and practices that emphasize walking and cycling systems in selected urban areas and the development of recreational paths and trails.
Option 3 is based on the premise that the private automobile will dominate personal travel and that walking and cycling will be pursued largely for leisure and recreation. The policy implications of this option are policies, programs and practices that emphasize the separation of motorized vehicle and walking and cycling systems and the development of recreational paths and trails.
Presently York Region’s policies, programs and practices represent a combination of Options 2 and 3. The Region does promote utilitarian walking to support transit, however, the pedestrian and cycling emphasis is largely focused on separated recreational systems and governed by the local municipalities.
6.0 DIRECTIONS FOR CHANGE
Walking and cycling are important elements of an integrated, intermodal transportation system and have a significant bearing on a local municipality’s vision for urban street design. York Region must be more aggressive in promoting, requiring and constructing facilities for pedestrians and bicycles to increase the safety and number of trips being made by these modes. This requires:
Pedestrian and bicycle facilities being given due consideration in the transportation and land use planning process at both the Regional and local municipal levels. Pedestrian and bicycle facilities being developed in conjunction with all new transportation construction and reconstruction projects at both the Regional and local municipal levels, excluding Provincial 400 series highways. Sidewalks being provided on both sides of all arterial and collector roads and on at least one side of all local roads, excluding cul-de-sacs, in both new and existing areas. Adequate lighting being provided along major pedestrian routes. Transportation plans and projects considering safety and contiguous routes for cyclists, scooters and pedestrians. Safety considerations may include the installation of traffic signals and signs at street crossings. The identification of a region-wide on-road cycling network in the York Region Official Plan and policy requirements that the local municipalities identify a similar municipal- wide network in their Official Plans.
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7.0 BIBLIOGRAPHY
City of Burlington, 1995. Strategy for Greenways and Trails.
City of Mississauga, 2000. Multi-Use Recreational Trail Study – Unapproved Draft.
City of Toronto, 2000. Toronto Plan: A Transportation Vision for the City of Toronto Official Plan.
City of Toronto, 2000. Toronto Plan Directions Report: Toronto at the Crossroads: Shaping Our Future.
City of Vaughan (enTRA Consultants Inc.), 1994. City of Vaughan 1994 Transportation Planning Study Final Report.
City of Windsor, 1999. The City of Windsor Official Plan.
Decima Research Inc., 1999. City of Toronto Cycling Master Plan – Final Report on Quantitative Research Results.
Dinsmore, Darin F., 1994. Waterfront Regeneration Trust – Waterfront Trail User Study.
Fruin, John J, 1971. Pedestrian Planning and Design.
Go For Green, undated. The Economic Benefits of Trails – Trail Monitor 1.
Greater Toronto Services Board, 2000. Removing Roadblocks To Continued Economic Prosperity for the Greater Toronto Area, Ontario and Canada: A Strategic Transportation Plan.
Greater Toronto Services Board, 2000. Removing Roadblocks: A Summary of Recent Transportation Studies.
Greater Toronto Services Board, 2000. Removing Roadblocks: Congestion and Economic Competitiveness.
Greater Toronto Services Board, 2000. Removing Roadblocks: How Co-ordinated Transit Can Reduce Congestion.
Marshall Macklin Monaghan Ltd., 1991. Bicycle and Pedestrian Route Study for the City of Mississauga, Technical Appendix.
New York City, 1997. New York City Bicycle Master Plan.
Region of Durham (TSH and McCormick Rankin Corporation), 2000. The Durham Mobility Study Working Paper #2 Vision, Policy and Issues.
Region of York, 1998. York Region Report Card.
Region of York, 1999. Official Plan (Office Consolidation).
Region of York, 1999. Official Plan Report Card.
York Region Policy Paper No. 6 Transportation Master Plan Pedestrians and Cycling Page 14 of 14
Region of York, 2000. York Region’s Infrastructure Program: A 10 Year Capital Plan 2000-2009.
Schutt, Alicia M., 1997. The Bruce Trail Association – A Comprehensive Economic Impact and User Study of the Bruce Trail.
State of Florida. Bicycle Facilities Planning and Design Manual.
The Toronto and Region Conservation Authority, undated. Trail Planning and Design Guidelines.
Town of Aurora, 1991/ Town of Aurora Official Plan.
Town of Caledon, 1993. The Design of the Caledon Trailway.
Town of East Gwillimbury. Town of East Gwillimbury Official Plan.
Town of Georgina, 1994. Town of Georgina Official Plan.
Town of Markham (IBI Group and Lehman & Associates), 1994. Markham Transportation Planning Study Final Report.
Town of Markham (enTRA Consultants Inc. & Victor Ford & Associates), 1999. Town- Wide Bicycle System Study.
Town of Milton, 1997. The Town of Milton Official Plan.
Town of Newmarket, 1996. Town of Newmarket Official Plan.
Town of Richmond Hill (Tranplan Associates), 1998. Richmond Hill Transportation Planning Strategy Study.
Town of Richmond Hill (Cole, Sherman), 1996. Transportation Planning Study.
Town of Whitchurch-Stouffville, 1990. Official Plan.
Township of King. The Official Plan of the Township of King Planning Area.
Transportation Association of Canada, 1993. A New Vision for Urban Transportation.
Victor Ford and Associates, 1990. Bicycle Use Development Study for the City of Windsor.
Victor Ford Associates Inc., 1993. Waterfront Regeneration Trust – Design and Signage Guidelines – Waterfront Trail.
Victor Ford and Associates Inc., 1999. Trails and Cycling Master Plan Study.
Waterfront Regeneration Trust, 1993-94. Linking People, Places and Nature – Workshop Series
York Region Policy Paper No. 6 Transportation Master Plan Pedestrians and Cycling TRANSPORTATION MASTER PLAN
Policy Paper No. 7
ASSET MANAGEMENT
For Discussion Purposes Only
November 2000 TABLE OF CONTENTS
1.0 INTRODUCTION...... 1
2.0 BACKGROUND ...... 1
3.0 YORK REGION SYSTEMS, STANDARDS & PRACTICES ...... 2
4.0 OPTIONS ...... 3
4.1 Conceptual Changes ...... 3 4.2 Integration with Other Management Systems ...... 4 4.3 Incorporation of New Technologies...... 5
5.0 DIRECTIONS FOR CHANGE...... 5
6.0 CONCLUSION ...... 7
6.0 BIBLIOGRAPHY...... 8
Prepared By: Marshall Macklin Monaghan November 2000
York Region Policy Paper No. 7 Transportation Master Plan Asset Management Page 1 of 8
1.0 INTRODUCTION
Municipalities have made a multi-billion dollar investment in transportation infrastructure such as roads, bridges and traffic controls. This investment is vital to the social and economic well being of communities as it ensures the safe and efficient movement of people and goods.
To continue functioning properly, transportation infrastructure requires on-going maintenance such as pothole repair, crack sealing and traffic signal lamp replacement. However, with limited budgets and an increasing demand on the transportation network, municipalities are challenged to manage the existing transportation infrastructure in a cost-effective manner. Asset management is one tool designed to meet this challenge.
Asset management is a systematic process of constructing, operating, maintaining and upgrading physical assets cost-effectively. It draws on the principles of engineering, business management and economics, together with policy, planning and government directions to produce strategies, purposeful actions and priorities to ensure the assets meet their intended objectives.
This paper reviews the current issues related to asset management and York Region’s current systems, standards and practices to identify options and directions for change.
2.0 BACKGROUND
Asset management is often confused with infrastructure management. Infrastructure management is a phase used to describe individual management systems for infrastructure such as pavement, pavement markings, bridges, traffic signals, equipment and buildings. Although these specialized tools vary in their purpose, there is consensus that the successful ones have 10 common elements:
1. Feature inventory database that identifies the type and location of maintenance related features and their respective quantities. 2. Work activity definitions that provide appropriate accomplishment and inventory units to facilitate planning, scheduling and control requirements. 3. Work activity standards that provide the desired quality levels related to physical condition, workmanship, and how often work is to be performed. 4. Work programs that achieve a consistent maintenance program from district to district. 5. Performance budget that considers the unit costs for each maintenance activity combined with the projected amount of each work activity from the annual work program. 6. Work calendars that estimates crew days for each maintenance activity, develops schedules and provides a basis for evaluating performance. 7. Resource requirements, such as labour, equipment and materials, are estimated for each work activity. 8. Work scheduling to facilitate effective scheduling and provide flexibility to accommodate emergencies and inclement weather.
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9. Work reporting to provide a basis for comparing planned work with actual work and the adequacy of the maintenance budget. 10. Management reports to monitor the progress of work throughout the year in relation to annual work program and performance budget.
Successful infrastructure management systems enable a municipality to: quantify maintenance needs; identify resources to meet those needs; determine standards to measure accomplishments and set priorities; monitor performance; and exercise program, budget and expenditure controls.
Whereas infrastructure management is focused on defining work needs and schedules for individual assets, asset management concerns itself with the impacts of all infrastructure management decisions on each other and the community. It is a higher level of decision-making analysis that focuses on: protecting the value of the asset; tailoring of the asset portfolio to business needs; minimizing risks and liabilities to the agency and the public; compliance with technical, accounting and administrative requirements; and performance management.
Asset management results in strategies to direct action on all assets, including managing demand and funding. These strategies provide a context for government service obligations, environmental conservation and sustainable development objectives. The process is driven by community values and expectations, and is highly tied to strategic business needs. Successful asset management systems also ensure the assets meet community needs and expectations, minimize risk and maximize value.
3.0 YORK REGION SYSTEMS, STANDARDS & PRACTICES
The Region of York’s Transportation division is presently responsible for the management of pavement surfaces and markings, bridges and signals along Regional roads, as well as the associated equipment (fleet) and facilities. The Region uses individual infrastructure management systems for each of these transportation components.
Pavement surfaces are managed through the use of a pavement management system (PMS). In general, every Regional road is scheduled for resurfacing every 13 years, although this timeline may be extended or shortened depending on field crew observations.
Pavement markings are upgraded on an annual basis.
Bridges are managed through the use of a bridge management system (BMS) that is similar to the PMS, although it requires more detailed data from field investigations.
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Traffic signal lamps are replaced annually and, in the event of an early burn-out, are replaced immediately upon notification from the central computer system. Traffic signal heads and controllers are replaced on a 7 year rotation.
The Region’s transportation fleet is managed through a fleet management system (FMS) that collects and analyzes data related to kilometres travelled, hours in service, gasoline consumption and repairs. Based on the analysis, the FMS determines when a vehicle should be repaired or replaced. In terms of facilities, the Transportation division is presently responsible for the 4 area yards in Maple, Markham North, Markham South and Newmarket. The facilities in Maple and Markham North are relatively new, and the other two are scheduled for replacement. The management of these facilities may be transferred to another department within the Region.
The Region of York is assuming responsibility for local public transit effective January 1, 2001. The integration of transit services previously provided by the local municipalities will require a consistent and coordinated system of managing transit assets. This will be limited to transit shelters, bus loops and terminals, since all fleet operations will be contracted out. The concept of private sector involvement in municipal bus operations is not new in York Region. At present, all five municipalities who operate scheduled bus service utilize private operators. This includes Laidlaw in Aurora and Newmarket, Miller in Markham, Pac West in Richmond Hill and Can Ar in Vaughan. Special services for the disabled are currently a mix of private or private/public sector operations throughout the five exiting municipal agencies. This situation is similar to the challenges faced by numerous other municipalities who as a result of amalgamation, are working toward integrating infrastructure management systems that have different operating systems and data sets.
For example, the Transportation Division of the City of Toronto is responsible for roadway pavement and markings, bridges, signs and signals. The City is in the process of combining the various data sets and management systems employed by each of the former municipalities into individual systems. Over the long term, it is their objective to develop an integrated asset management system that would coordinate and analyze the information from all of the individual infrastructure management systems.
4.0 OPTIONS
Developing a quality asset management system is critical. Through the literature there are three broad categories of recommendations on how to develop quality asset management systems:
1. Conceptual changes; 2. Integration with other management systems; and 3. Incorporating new technologies.
4.1 CONCEPTUAL CHANGES The conceptual changes involve improving the current concepts that define asset management systems. Some of these improvements include:
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more customer involvement in the establishment of levels of service to allow agencies to determine how well they are satisfying their customer needs; increased use of technology to translate assessed conditions into estimated workloads and reduced subjectivity; optimal programming to aid in the timing, frequency, extent and type of routine maintenance required; and privatization of certain maintenance activities to firms that have special equipment and trained personnel if it is determined that this is a more cost effective means to carry out a particular task.
The data collected for analysis must be relevant to the condition and performance of the infrastructure under examination. While there is a wealth of condition assessment criteria for transportation infrastructure such as pavement and bridges, there is a general lack of performance parameters that are more relevant to the general public. Examples of such performance parameters include: smoothness of ride and overall quality of service; timeliness of travel and overall mobility on the system; accessibility provided to all areas by the system; and availability of facilities (whether facilities are always open).
Integrating such performance measures is consistent with making transportation agencies more customer oriented, and confirming the true impacts on the community.
4.2 INTEGRATION WITH OTHER MANAGEMENT SYSTEMS In high growth municipalities there is often competition for transportation infrastructure funding between preservation programs and new development projects. To effectively argue for preservation programs, transportation agencies must be able to substantiate their claim that preservation costs rise as infrastructure ages, and that new development projects should be prioritized and funded in recognition of their long-term maintenance costs.
However, the software used in infrastructure management is usually one-dimensional. It only analyzes information for one specific transportation infrastructure asset. Typically, it lacks the capability to support comparisons between competing choices, address interoperability issues, enable more comprehensive evaluation of all assets and alternatives, and generally support good asset management practices at all levels of the organization. As a result, agencies are losing out on the efficiencies that come from a more integrated approach to planning and the opportunity to educate decision-makers of the consequences of trade-offs and the need for funding flexibility.
The challenge with integrating many different infrastructure management systems into an asset management system is that the data must be maintained using consistent formats to successfully share data between systems. This implies that agencies must be consistent in recording certain types of data, plus the frequency and methodology for updating, collecting and retrieving must also be a uniform standard. The emergence of geographic information systems and global positioning technology has aided in the creation of this data consistency; however, most agencies are still struggling to develop an integrated software system to coordinate and analyze this information.
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4.3 INCORPORATION OF NEW TECHNOLOGIES New data collection technologies enable more accurate and objective information to be gathered, often at a lower cost and greater speed. Advances in data communications and computer software are allowing improved access to information and the ability to link disparate databases. They are also providing a powerful array of tools for people at all organizational levels to make better use of available data.
Table 1 provides an overview of different technologies and their potential uses in asset management.
Table 1: Technology Options for Asset Management Inspection, Work Scheduling Equipment & Integrated Condition & Work Support & Activity Inventory Inventory Assessment Reporting Management • GPS • Videologs • Real-time video • Bar coding • Portable data • GIS • Photologs monitoring • Portable data entry terminals • CADD • Portable data • Vehicle tracking entry terminals • Bar code • Videologs entry terminals • Data • Voice scanners • Photologs • Acoustics communications recognition • Voice • Portable data (distress (celluar • Electronic scales recognition entry terminals identification) telephone, • Electronic fuel • GPS • Map • Radar (structural satellite, gauges • Distance conversions conditions) microwave, • Radio frequency measuring (scanners, • Eddy currents UHF) identification instrument conversion (structure and • Sensors (hazard tags • GIS with software) distress) identification, shortest • Bar coding • Infrared snow/ice path/vehicle • Radio frequency thermography conditions) routing identification (temperature) • Display of real- capability tags • Profilometers, time weather, • Metal detectors roadmeters temperature, • Electronic (pavement snow/ice, vehicle distance roughness) location data measuring • Deflectometers instruments (structural conditions) • Reflectometers (visibility of signs, markings)
5.0 DIRECTIONS FOR CHANGE
The Region should begin to develop an asset management system. As previously noted, such a system would enable the Region to make strategic infrastructure investment decisions, better meet community expectations and maximize the value of infrastructure investments.
The Region needs to carry out a number of sequential activities that will allow it to develop a comprehensive asset management system. These activities include:
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1. Evaluation of the Region’s current practice with respect to the basic elements and components of asset management. This will help identify gaps, strengths and weaknesses. This activity includes the consolidation of documents related to existing systems and the evaluation of them against typical asset management components.
2. Development of a business process for managing the decisions related to the regional assets. Given the changes in provincial/municipal relations and the amalgamations currently underway in other Ontario municipalities, it may be an opportune time for the Region to consider changes to its decision making process.
3. Definition of a set of constraints set by Council and/or the province, including compliance with accounting, technical and administrative procedures. The Canadian Institute of Chartered Accountants requested the use of accrual accounting as a basis for reporting infrastructure investments, and the Province has accepted this practice.
4. Identification of key issues emanating from the above business process and constraints. To illustrate the importance of this activity, the accrual accounting requirements should be considered. This approach is useful for “closing the books”, but is not helpful in managing the assets because each time a government invests money in a facility, its value rises. This may not be the case for a number of situations where the money invested is to arrest the rate of deterioration, yet the value continues to decline. A more useful approach would be the “discounted replacement value”. This approach accounts for the deterioration of the asset and hence is useful for managing the asset. The major issue is determining which one will be used as a base, and how to reconcile between the two values.
5. Setting priorities among the competing issues and areas for development. Since resources are limited, it is essential to set some priorities in this area in order to maximize the return on the Region’s investment.
6. Development of a program of action, based on the above priorities, that will lead to the transformation of the fragmented component management systems, such as pavement, maintenance and fleet management systems, into a coherent and integrated asset management system.
With the amalgamation of transit services, the Region should also develop a single transit infrastructure management system for the previously noted shelters, loops and terminals. In terms of the Regional bus fleet, the necessary language will need to be included in the contract with the private operator to insure minimum maintenance requirements and performance specifications. This system should be developed in parallel with the Regional asset management system to ensure compatibility, and to optimize efficiency and cost-saving opportunities.
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6.0 CONCLUSION
Asset management is a new concept that has evolved out of necessity based on increasing demands, shrinking budgets and staff resources, plus advancements in technology and the successful implementation of management science in optimizing field operations. Like all new ideas and innovations, there is not yet one complete system on the market that the Region can buy and utilize immediately. There are numerous fragmented computer packages that can assist in the management of some aspects of asset management. However, simply purchasing them without a strategic plan can be wasteful. Therefore, it is essential for the Region to develop such a strategic plan and detailed transition plans before decisions are made in this area.
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6.0 BIBLIOGRAPHY
American Association of State Highway and Transportation Officials (AASHTO), 1998. AASHTO Asset Management Strategic Plan. (AASHTO, www.dot.state.ia.us/aashtoam).
Maze, Tom. 2000. “GASB 34: Establishing a Value for Infrastructure Assets” in Technology News (July/August, 2000).
McNeil, Sue, Tischer, Mary Lynn and DeBlasio, Allan, 1999. Asset Management: Survey Responses. (AASHTO, www.dot.state.ia.us/aashtoam).
National Research Council, 1998. Highway Maintenance Quality Assurance: Final Report (Eres Consultants Inc.).
Nemmers, Charles, 1997. “Transportation Asset Management” in Public Roads, Volume 61, Number 1 (July/August, 1997).
Regional Municipality of York, 2000. 2000 Business Plan and Budget Detail. (Regional Municipality of York)
Rensselaer Polytechnic Institute Centre for Infrastructure and Transportation Studies (Rensselaer), 1997. 21st Century Asset Management. (AASHTO, www.dot.state.ia.us/aashtoam).
Mouaket, Abe, IM Associates Ltd., Commentary on Asset Management, November, 2000.
York Region Policy Paper No. 7 Transportation Master Plan Asset Management On the Move... …towards sustainable transportation
TRANSPORTATION MASTER PLAN
Policy Paper No. 8
FUNDING
For Discussion Purposes Only
October 2000 TABLE OF CONTENTS
1.0 INTRODUCTION & BACKGROUND...... 1
2.0 PRESERVATION AND EXPANSION OF THE TRANSPORTATION INFRASTRUCTURE IN THE GTA WILL REQUIRE SIGNIFICANT INCREASES IN CAPITAL INVESTMENT ...... 2
2.1 Five Key Components Make Up the Transportation System in the GTA ...... 2 2.2 $1.37 Billion Needs to be Invested Annually to Preserve & Expand the Transportation System...... 4
3.0 TRANSPORTATION FUNDING IN YORK REGION HAS INCREASED SIGNIFICANTLY OVER HISTORIC LEVELS, BUT MAY REQUIRE EVEN LARGER INCREASES...... 9
3.1 The Region’s 2000-2009 Capital Plan Nearly Doubles Historic Spending & Includes Initial Funding for Priority Transit ...... 10 3.2 Expansion of Transit Services Will Require Significant Increases in Funding ...... 14 3.3 Expansion of GO Services Will Require Increased Regional Funding...... 20
4.0 SPECIFIC FUNDING NEEDS WILL BE ADDRESSED THROUGH THE MASTER PLAN PROCESS ...... 20
4.1 Funding Requirements Will Be Identified ...... 21 4.2 Revenue Sources to Fund the Plan Will Be Evaluated...... 21
APPENDIX – Potential Alternative Funding Sources
Prepared By: Hemson Consulting October 2000
York Region Policy Paper No. 8 Transportation Master Plan Funding Page 1 of 26
1.0 INTRODUCTION & BACKGROUND
There is growing recognition that the entire Greater Toronto Area is facing a serious decline in the quality and efficiency of transportation services. Investment in roads and transit has not kept pace with growth in transportation demand. The result has been growing congestion and its associated increased costs to businesses and society, which is a threat to the future economic competitiveness of the overall region. The implications of growing congestion are also beginning to emerge as an important issue with the public.
At the same time that the need for additional investment in urban transportation is growing, Ontario has embarked upon a major restructuring of municipal finance. The “Local Services Realignment“ (LSR) process has resulted in municipalities being responsible for capital funding of various transportation-related infrastructure that was funded previously by the Province (eg. GO Transit) together with the elimination of operating and capital subsidies. Municipalities are finding it difficult to find the funds (beyond what they have been spending) required to pay for the needed infrastructure. Like all taxes, the property tax is under strong public pressure to remain stable or decline. Provision of adequate levels of funding to maintain the existing infrastructure, let alone expand it to accommodate the significant growth that is occurring, is a serious challenge for all jurisdictions in the GTA including the Region of York.
Meeting this challenge is vital for the Region of York and other municipalities in the GTA and will likely require a combination of tax increases, aggressive use of development charges, access to new revenue sources, increasing tax room for transportation by “uploading” funding responsibility for other services to the Province and additional support from senior levels of government. It has been noted that a growing number of other municipal jurisdictions within Canada and other areas of the world are being given new financial resources to address future transportation needs1. The financial assistance is taking the form of direct grants and new dedicated revenue sources for transit and other transportation projects.
As background information to the preparation of the Region of York’s Transportation Master Plan, this report reviews the transportation funding issues in the GTA, and, more specifically, those that face York Region.
This report is structured into three sections that address the following: S the funding gap for municipally-controlled transportation infrastructure in the GTA; S transportation funding policies and practices in the Region of York (and its constituent area municipalities in respect of transit services); and S specific funding needs to be addressed through the Master Plan process.
1 See “Funding Transportation in the Greater Toronto Area & Hamilton-Wentworth,” a report to the Transportation Funding Opportunities Task Force, IBI Group and Hemson Consulting Ltd. in association with C.N. Watson & Associates, April, 1999.
York Region Policy Paper No. 8 Transportation Master Plan Funding Page 2 of 26
2.0 PRESERVATION AND EXPANSION OF THE TRANSPORTATION INFRASTRUCTURE IN THE GTA WILL REQUIRE SIGNIFICANT INCREASES IN CAPITAL INVESTMENT
The urban transportation system in the GTA has evolved over the last half of this century as a multi-modal, inter-regional network of road and rail facilities. The automobile is the dominant mode of transportation carrying about 74% of the total travel2 in the morning peak period. Travel forecasts suggest a 60% growth in vehicle-kilometres using the area’s road system over the next 20 years while the planned and committed capacity increases in the road system is estimated at only 12%.
While there is a range of transportation investment options available, one thing is clear from all of the area-wide transportation planning that has been undertaken. Automobile travel on roads cannot accommodate all of the growth in demand, so transit must play an increased role in the transportation system. Planned roads are not capable of accommodating forecast growth in traffic and no realistic opportunities exist to create significant new road capacity in developed areas. Therefore improved transit must also be put in place to alleviate the present and anticipated road congestion.
Initiatives such as changing land use and development patterns to reduce the need for expansion of the system or to be more transit-supportive will help to address growing transportation needs over the long term. Nevertheless, studies indicate there will be an immediate and continuing requirement to significantly increase the level of transportation funding just to maintain, let alone improve upon current congestion levels. Provision of adequate levels of funding for the transportation system in the current environment of fiscal constraint will be a difficult, but prudent choice that will help to ensure that the economic, social and environmental health of the GTA is protected.
2.1 FIVE KEY COMPONENTS MAKE UP THE TRANSPORTATION SYSTEM IN THE GTA The urban transportation system in the GTA evolved over several distinct periods from the 1950s through the 1990s and can be viewed as having five key components: the Expressway System; Regional Roads; GO Transit; TTC; and Local Transit. There is also growing pressure in York Region and in other 905 Regions to add a sixth component, which is called “priority transit” in this report. York Region and other municipalities in the GTA are dependent on all components working effectively since increases and decreases in service levels for any one, whether due to a rush-hour accident or the construction of an additional expressway lane, influence the conditions and level of service on the others. The five components are described briefly below.
The Expressway System is the Backbone of the Road Network The 400-series highways (including the QEW) are the backbone of both the provincial and regional road system3.
2 1996 Transportation Tomorrow Survey (TTS); travel measured as person kilometres. 3 The Gardiner Expressway, Don Valley Parkway, Allen expressway and Lincoln Alexander Parkway are parts of the expressway system. They are treated as regional roads for the purposes of this report as they are the responsibility of the municipalities rather than the Province.
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The expressway system serves a dual function in that it not only carries large volumes of commuter trips but must also accommodate longer through trips and the movement of goods by truck. Funding responsibility for this system (other than components transferred to municipalities in 1998) resides with the provincial government. An estimated 56% of morning peak period trips on this system are “inter-regional” in that they cross through one or more regions in the GTA.
Regional Roads Serve Trips Within the Regions & Feed the Expressway System These roads are the backbone of the transportation system within each of the Regions and the City of Toronto. They serve residents, businesses, commuters and visitors. In addition to serving shorter trips, they are the major feeder system to the expressway system. During congested periods, the regional road system also provides an alternative to the expressways.
Existing transit service relies on these roadways to operate efficiently and they are likely to be the corridors in which future improvements in transit services can be implemented.
Outside of Toronto and Hamilton-Wentworth, the increase in regional road traffic in the 905 Regions is in the range of four to six per cent per year. New and expanded facilities are required to reduce congestion and improve service levels. Even just to preserve this extensive and complex system, large amounts of capital are necessary. Funding for this system is provided totally by the respective Regions and the City of Toronto, since all provincial grants and subsidies were discontinued in 1998.
GO Transit Relieves the Expressway System & Supports Employment in Downtown Toronto The GO Transit system, inaugurated in 1967, was built by the Province as the only practical way to move growing numbers of commuters from the surrounding Regions to and from downtown Toronto, the business and financial centre of Canada.
Over the past 20 years, virtually all growth in travel to the central area has been carried by GO Transit. GO Transit has been responsible for facilitating growth in the 905 Regions by supporting radial commuting and moderating congestion on the expressway and regional road systems. Thirty-six million people rode GO’s commuter trains and buses in 1998, an increase of four per cent over 1997. The pattern of increased ridership has been strong: over the three-year period between 1996 and 1999 growth was 16%. But during the same period there has been virtually no increase in the rail service provided. In fact, the number of train-kilometres of service has declined since 1992. Some 83% of morning peak period trips cross one or more regional boundaries, emphasizing the GO system’s uniquely strong inter-regional role in tying the entire economic region together.
Until 1998, funding for GO Transit was provided by the Province, but following the “Local Services Realignment”, GO Transit is now funded jointly by the 905 Regions, the City of Toronto and Hamilton-Wentworth.
Toronto Transit Commission (TTC) Has a Growing Inter-Regional Role At the present time, 85% of all transit trips in the GTA are made on the TTC. It is the second highest ridership system in North America after the New York City system.
York Region Policy Paper No. 8 Transportation Master Plan Funding Page 4 of 26
Almost all of the trips, 88%, taken on the TTC start and end within the City of Toronto. In the future, the TTC may assume an increasingly important inter-regional role in the GTA by further integrating fares and co-ordinating services with GO Transit and many of the local transit systems. However, this cannot be accomplished within existing funding constraints because integrated fares initially lower the fares for current customers - leading to revenue losses. In the long term, both revenues and costs increase due to new customers being attracted to the system.
The City of Toronto assumes full financial responsibility for the TTC, although the Province is participating in funding for “the state of good repair” program and the Sheppard subway project.
Local Transit Systems Accommodate Local Trips and Feed GO and TTC In addition to the TTC, there are 15 other municipal transit systems in the GTA (including Hamilton-Wentworth). These systems not only provide local service but also act as feeders to GO stations and to the TTC subway system.
Rapid growth in population is placing great pressure on municipal capital and operating budgets to meet rapidly expanding requirements for municipal services of all types, including transit. Recently, local transit has been experiencing a downward spiral where fiscal constraints, service cuts and the resulting reduced ridership and revenues lead decision-makers to make budget and service cuts, contributing to further losses of ridership and revenue and increased congestion as more trips are made by car. At the present time within the GTA, funding for conventional local transit systems is the responsibility of the area municipalities that comprise the Regions.
2.2 $1.37 BILLION NEEDS TO BE INVESTED ANNUALLY TO PRESERVE & EXPAND THE TRANSPORTATION SYSTEM Over 70 % of the GTA expressway system is now experiencing peak period congestion (defined as traffic volume on a road exceeding 95% of its design capacity) and much of the GO system is stretched to its current capacity limit. Regional roads, the TTC and other local transit operators are facing a variety of problems, many related to a lack of capital investment.
A recent study indicates that up to $1.37 billion would need to be invested annually in the GTA and Hamilton-Wentworth to expand municipally controlled transportation infrastructure sufficiently to reduce present congestion levels and preserve the system on a life-cycle costing basis4. This represents an annual increase of nearly $800 million over present capital spending plans which total about $570 million annually.
Exhibit 1 summarizes three capital investment scenarios identified in the study.
S Scenario 1 focuses on preserving the current system with modest expansion, primarily in response to growth in the 905 Regions. While this scenario requires significantly increased investment, it would still result in a worsening of congestion.
4 “Funding Transportation in the Greater Toronto Area & Hamilton-Wentworth,” a report to the Transportation Funding Opportunities Task Force, IBI Group and Hemson Consulting Ltd. in association with C.N. Watson & Associates, April, 1999.
York Region Policy Paper No. 8 Transportation Master Plan Funding Exhibit 1 Alternative Transportation Investment Scenarios in the GTA/Hamilton Region (annual 1998 $ in millions) SCENARIO 1 System Preservation with Modest Expansion System Preservation Expansion Total Capital Component Capital (1) Capital GO Transit $70 $85 $155 TTC $250 $150 $400 Regional Roads $180 $120 $300 Local Transit $20 $20 $40 Priority Transit $10 $30 $40 Municipal Total $530 $405 $935 SCENARIO 2 Maintenance of Current Congestion Levels GO Transit $85 $110 $195 TTC $275 $175 $450 Regional Roads $200 $200 $400 Local Transit $25 $25 $50 Priority Transit $15 $35 $50 Municipal Total $600 $545 $1,145 SCENARIO 3 Reduced Congestion Levels GO Transit $100 $150 $250 TTC $300 $200 $500 Regional Roads $220 $280 $500 Local Transit $30 $30 $60 Priority Transit $20 $40 $60 Municipal Total $670 $700 $1,370 Source: "Funding Transportation in the Greater Toronto Area & Hamilton-Wentworth," IBI Group, Hemson Consulting Ltd in association with C.N. Watson & Associates, April, 1999.
Note: (1) Preservation capital for major maintenance and rehabilitation of infrastructure and bus and rail fleets. Page 6 of 26
S Scenario 2 includes additional expansion with the intent of maintaining congestion at existing levels.
S Scenario 3 involves further expansion, although less than recommended in earlier provincial/municipal reports5 aimed at reducing congestion levels. Both Scenario 2 and Scenario 3 also involve more capital expenditure on system preservation (e.g. infrastructure rehabilitation and fleet replacement) than Scenario 1 in order to maintain the expanded systems in good working order.
Since the referenced study focussed on municipal transportation funding requirements, the three scenarios exclude the provincially funded expressway system. However, priority transit was included since the Region of York and other 905 Regions have identified this as a critical component of their transportation systems. Priority transit would consist of bus routes using lanes with traffic signal priority on existing or widened roads or using shoulder lanes as is effectively done in Ottawa. In some cases, bus only lanes could be shared with “high occupancy vehicles” (HOVs) carrying two or three persons or more. Priority bus routes are recognised as a cost effective method of introducing “semi-rapid” transit to new areas. As GO train service has proven, a very high transit market share is possible when a service is as fast as, or faster than driving. Over time, as need is established and financing is available, higher levels of service such as separate busways or LRT lines can be introduced. To achieve an effective priority transit system, an inter-regional, integrated approach is required. The system could initially include some 100 km of priority bus lanes on major arterial roads such as parts of the former Provincial Highways 2, 5, 7, and 10 which were recently transferred to municipal jurisdiction. Depending on the nature of the routes, the capital cost of such a priority bus system could be in the order of $3 to $6 million per kilometre. Busways on separate rights-of-way, such as have been planned for the Highway 403 corridor in Peel Region or provided for in the Highway 407 right-of-way or which could be implemented in various hydro corridors, would have a higher capital cost in the order of $30 to $40 million per kilometre.
Scenario 3 is the only one of the three that would provide sufficient expansion to have the potential of reducing congestion levels relative to existing conditions. This means that there would have to be sufficient expansion not only to keep up with anticipated levels of growth in total trips, but also to add additional capacity/ service levels in convenient, comfortable and reliable transportation throughout the area.
Of the investment of approximately $1.37 billion annually estimated in the study, $670 million per year would be required to preserve the existing/expanded system, on a life-cycle costing basis, and the remaining $700 million per year would be for system expansion.
S GO Transit ($250 million per year) Investment in GO service remains the best method of moving additional people to and from the central part of the GTA and the best method of helping to relieve related capacity problems on the freeway and regional roads systems. This level of investment would allow GO to preserve the existing and expanded system and to make a greater contribution towards moderating passenger travel growth on the
5 “GTA 2021 — Infrastructure: Report of the Provincial– Municipal Infrastructure Working Group,” March 1992, Office for the Greater Toronto Area, Government of Ontario.
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freeway and regional road system by removing a larger share of new demand from the roads in major travel corridors. Additional service could be added to existing lines and/or new service could be provided on new lines serving the northwest, northeast.
S TTC ($500 million per year) This would include $300 million per year to preserve the existing and expanded system and $200 million per year for system expansion such as priority bus routes and busways and/or possibly selected subway extensions such as the Spadina line to York University and a park and ride facility near Highway 407 with the Yonge line extended north to Langstaff.
S Regional Roads ($500 million per year) Improved levels of service on the regional road system would require expenditures in the range of $500 million annually. Of this, $280 million per year would be invested in new regional roads or on widening of existing roads, where feasible, and often in conjunction with providing priority transit service. The remaining $220 million per year would be required to preserve the existing/expanded road system.
S Local Transit ($60 million per year) An increased capital expansion budget of $30 million per year under this scenario would pay for expansion of bus fleets and related plant, while the remaining $30 million per year would be required to preserve the existing and expanded system. If local transit is to make a significant contribution to reducing congestion levels, bus- kilometres of service will have to be more than doubled during the coming decade, and the speed and reliability of the service will have to be significantly increased.
S Priority Transit ($60 million per year) In order to achieve the necessary increases in transit speed/reliability and conveni- ence, Scenario 3 provides additional funds to increase the coverage and capacity of priority transit service on major arteries throughout the 905 Regions; $40 million per year would be invested in expanding the priority transit system, and the remaining $20 million per year of capital would be required to preserve the expanded system.
Achieving the goal of Scenario 3 would also require $250 million per year investment by the provincial government on the 400-series highways in the GTA and Hamilton- Wentworth ($100 million per year for preserving the existing/expanded system and $150 million per year for expansion) over the next 10 years.
Exhibit 2 illustrates that the average annual capital investment required to support Scenario 3 would represent nearly a two and one-half fold increase over the $570 million annual capital investment planned by GTA municipalities and Hamilton over the 1998- 2007 period. The $1.37 billion annual investment would represent an increase of $800 million annually across the GTA. While this amount of funding for the transportation system will be difficult to accomplish, there are already signs that funding plans are being approved at significantly higher levels.
As an example, it is noted that since the time the referenced study was prepared, the Greater Toronto Services Board (GTSB) approved a ten year capital forecast for GO Transit totalling $1.8 billion or $180 million annually, an amount significantly higher than the $50 million average annual capital budget previously planned as shown in Exhibit 2. The $1.8 billion includes $826 million ($83 million annually) for “state of good repair”
York Region Policy Paper No. 8 Transportation Master Plan Funding Exhibit 2 Annual Capital Funding Gap of $800 Million Estimated for Municipally-Controlled Transportation Infrastructure in the GTA/Hamilton Region 1998-2007 Required Spending Annual System Budgeted Average (Scenario 3, in Funding Gap Component Annual Spending millions) (in millions) (in millions) GO Transit $50 $250 $200 TTC $230 $500 $270 Regional Roads $260 $500 $240 Local Transit $30 $60 $30 Priority Transit $0 $60 $60 Municipal Total $570 $1,370 $800
Source: "Funding Transportation in the Greater Toronto Area & Hamilton-Wentworth," IBI Group, Hemson Consulting Ltd in association with C.N. Watson & Associates, April, 1999.
Budgetted Average Annual Spending Notes: GO Transit based on1998 Budget, Five Year Capital Program 1999-2003 and accounting estimate for 2004-2007. TTC forecast provided by City of Toronto Finance Department. Includes RTEP and "State of Good Repair" programs, net of provincial subsidies for these programs. Regional roads forecasts are either actual budgetted amounts or estimated future intentions provided by each GTAH-W Region and include the capital costs of any WDW downloaded roads/highways. Local transit forecasts are budgetted amounts provided by local area munipalities. Where approved budgets did not exist - estimated spending was provided by area treasurers/financ departments, where available. Page 9 of 26
(preservation capital) and a capped amount of $983 million ($98 million annually) for growth and expansion. It is noted, however, that this capital plan is subject to securing two-thirds of the required funding from Federal and Provincial sources.
It is noted further that in spite of the substantial increase in the GO Transit capital forecast, a funding gap of $70 million annually is still evident in relation to Scenario 3. In a report prepared by the Regional Treasurers and Treasurer of the City of Toronto, they noted that
“While the $983 million 10 year Capital Forecast is a significant increase relative to the minimal investments while under Provincial jurisdiction in the 1990's, it should be emphasized that the $983 million is the minimum required to provide sufficient capacity to accommodate 2009 forecast ridership.”6
As noted above, only Scenario 3 is thought to provide sufficient capital funding to produce transportation system improvement and expansion that would reduce existing levels of congestion and provide significantly improved levels of service for users of both the road and transit systems.
Scenario 1, which requires an annual investment of $935 million, only preserves the existing infrastructure and makes a few of the most essential expansion investments. Under Scenario 1 the urban transportation system would experience a significant increase in the level of congestion.
Scenario 2 would likely be able to maintain current levels of congestion; that is, prevent them from worsening. However, current levels of service are much below levels that the public have experienced in the past and, by comparison, to some urban areas with which this region competes. A freeway system of which over 70% experiences significant and increasing levels of congestion is not adequate to maintain the area’s economic competitiveness. Remaining capacity deficiencies on GO Transit, the TTC, regional roads and other transit services will discourage businesses from locating in the region and will also contribute to social problems and environmental degradation.
3.0 TRANSPORTATION FUNDING IN YORK REGION HAS INCREASED SIGNIFICANTLY OVER HISTORIC LEVELS, BUT MAY REQUIRE EVEN LARGER INCREASES
The Region of York is a fast growing, integral part of the economic region of the GTA and is highly integrated economically and socially with the City of Toronto, other 905 Regions and Simcoe County. Since 1971, York Region has increased in population by over four times, from 169,000 to well over 700,000 today. Employment growth has been even more dramatic, increasing seven fold from 55,000 in 1971 to an estimated 385,000
6 Report to the GTSB Finance and Administration Committee, “GO Transit - 10 Year Capital Plan (2001- 2010) and the Growth and Expansion Capital Cost Allocation Methodology,” the Regional Treasurers and the Treasurer of the City of Toronto, June 8, 2000, p. 4.
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expected by 2001. Projections estimate that the population in the Region will grow to nearly 1.3 million by 2026, while employment is forecast to increase to nearly 700,0007.
The transportation system in York Region comprises many of the elements described in the foregoing section of this report. There is a growing network of Provincial expressways including Highways 400, 404 and 407 (Highway 404 is soon to be widened and extended to Green Lane/Herald Road - the extension will be carried out in partnership with the Province as part of its five-year $20 billion SuperBuild initiative). Regional roads include the recently assumed Highway 7 and 11 (Yonge Street) together with a grid system of concession roads and smaller highways that serve as arterials feeding the expressways and providing access to all parts of the Region. Local transit is presently provided by area municipalities in the Region, although these services will become the responsibility of the Region in 2001. The City of Vaughan, along with the Towns of Markham, Richmond Hill, Newmarket and Aurora all operate conventional transit services and specialized services for the disabled. The Towns of Whitchurch- Stouffville and Georgina operate specialized transit services only. GO Transit provides inter-regional rail and bus service to the Region, including three GO rail lines - Bradford, Richmond Hill and Stouffville - which serve the Region during the weekday peak morning and afternoon hours.
Funding for Regional roads is provided largely from Regional taxes and development charges, with relatively minor funding from fees and charges and reserve contributions for specific projects. Development charges are only applicable to growth-related capital costs, while Regional taxes support a share of capital expansions (typically the non- growth and discounted shares of growth-related capital costs), major system rehabilitation/reconstruction (capital preservation) and ongoing operating and maintenance costs. Since 1998, the Region has also been responsible for funding a share of GO Transit (together with the City of Toronto, the other 905 Regions and the Region of Hamilton-Wentworth). Local transit funding is presently the responsibility of the respective area municipalities, but funding responsibility will be transferred to the Region in 2001. Portions of the expansion capital costs for transit are supported by development charges (growth-related share). Remaining capital costs (for fleet and plant replacement/rehabilitation and the mandatory 10% discount share of growth-related capital costs8) and annual operating costs are funded from a combination of fare box revenue, other relatively minor revenues (e.g. advertising revenue) and property taxes.
3.1 THE REGION’S 2000-2009 CAPITAL PLAN NEARLY DOUBLES HISTORIC SPENDING & INCLUDES INITIAL FUNDING FOR PRIORITY TRANSIT Growth in traffic on the Region’s road system is already outpacing population growth and this trend is forecast to continue as the Region develops over the next 25 years. A number of transportation-related studies have shown that expansion of the Regional road system will be necessary to accommodate growth, but with limited space to expand the road network, there will be an increasing need to invest significantly in priority transit if increased congestion is to be avoided. In recognition of this, transportation funding has been increased significantly in the Region’s recent capital budgets.
7 “York Region Population, Household and Employment Forecasts to 2026,” June 2000. 8 The Development Charges Act, 1997, requires that 10% of eligible growth-related capital costs be funded from non-development charge sources.
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Exhibits 3 and 4 show the level of Regional transportation capital expenditure over the 1990-1999 period and the Region’s most recent capital budget for 2000-2009 respectively. The forward ten-year plan, with gross funding averaging nearly $63.2 million annually is nearly double the historic annual average gross capital expenditure of $34.2 million.
The 2000-2009 capital budget includes a very strong expansion program for Regional roads totalling nearly $548 million. In addition, there is provision for the initial phases of the priority transit program totalling $31.8 million. The balance of the budget is directed to capital preservation with nearly $50 million allocated to bridge rehabilitation and road resurfacing (it is noted that a portion of the expansion program also provides for a share of rehabilitation - as road widenings take place on existing Regional roads, the existing road is either reconstructed or resurfaced). Whether this level of rehabilitation funding is adequate will be addressed during the course of the Master Plan process.
Funding for the capital program is predominantly from development charges (nearly $405 million) and from the Regional tax levy ($221.5 million including $210.5 million in new tax funding plus $11 million from the Roads Capital/Highway reserve). Development charge funding is applied to various shares of growth-related projects, and reflects the Region’s continuing commitment to provide much needed expansion of its transportation infrastructure to service growth. Tax funding for the program has been increased by $10 million annually in recent years, reflecting the requirement to fund the non-growth share of the expansion program and to provide for system rehabilitation.
The capital budget follows the capital funding plan embodied in the Region’s Consolidated 1998 Development Charge Background Study as amended in 1999. Exhibit 5 summarizes the basis for the transportation portion of the development charge. Both the roads program and the priority transit program are included. As shown at the top of the table, the 24 year capital program (1998-2021) totals over $1.6 billion, an average annual budget of $69 million for growth-related projects. The road expansion program totals slightly over $1.4 billion gross and the priority transit program totals $251.6 million. After various adjustments to account for specific funds-on-hand and targeted cost savings/efficiencies, the net roads program is estimated at $1.3 billion, while the transit program totals nearly $244.7 million. The total transportation expansion program is estimated at slightly over $1.54 billion or $64.4 million annually.
The bottom portion of Exhibit 5 shows the funding for each portion of the program that will come from development charges and the tax levy. For the roads program ($1.3 billion after targeted cost savings), development charges will fund $799.7 million and the tax levy will fund $500.5 million. The tax funded portion of the program consists of the non-growth share of the program, estimated at $391.5 million, plus an adjustment of $109 million in respect of a settlement negotiated for non-residential development. Funding for the priority transit program, totalling $244.7 million, includes $104.6 million from development charges and $140.1 million from the tax levy. The tax funded portion of the program consists of the non-growth share of the program (set at 50% of the gross cost or $125.8 million) plus an adjustment of nearly $14.3 million in respect of the negotiated non-residential settlement.
York Region Policy Paper No. 8 Transportation Master Plan Funding Exhibit 3 Region of York 1990 - 1999 Transportation Services Historical Capital Expenditures (current dollars in 000's)
Total Average 1990 1991 1992 1993 1994 1995 1996 1997 1998 1999 1990-1999 Annual
Gross Capital Expenditures $32,386 $28,596 $36,333 $41,595 $30,243 $33,664 $32,541 $21,245 $33,448 $52,392 $342,444 $34,244 Capital Grants $12,561 $10,824 $9,668 $10,612 $11,828 $10,986 $2,509 $1,600 $5,476 $1,155 $77,220 $7,722 Net Capital Expenditures $19,825 $17,772 $26,665 $30,983 $18,415 $22,677 $30,032 $19,645 $27,972 $51,237 $265,224 $26,522
Grants as % of Gross 38.8% 37.9% 26.6% 25.5% 39.1% 32.6% 7.7% 7.5% 16.4% 2.2% 22.5%
Source: 1990-1999 Financial Information Returns, lines 8, 9 and 12 schedule 6.
Exhibit 4 Region of York 2000 - 2009 Transportation Services Capital Budget & Forecast (2000 dollars in 000's)
Total Average 2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 2000-2009 Annual
Roads & Bridges $100,993 $64,740 $60,462 $51,247 $31,752 $49,301 $46,825 $50,485 $43,745 $48,240 $547,790 $54,779
Major Transit Infrastructure $300 $4,000 $2,300 $3,500 $2,200 $1,000 $4,000 $2,500 $6,000 $6,000 $31,800 $3,180
Sub-total - Roads, Bridges & Transit$101,293 $68,740 $62,762 $54,747 $33,952 $50,301 $50,825 $52,985 $49,745 $54,240 $579,590 $57,959
Rehabilitation Program - Bridge Rehabilitation $1,744 $1,000 $1,000 $3,060 $2,000 $2,000 $2,000 $2,000 $2,000 $2,000 $18,804 $1,880 - Resurfacing $3,419 $1,443 $1,629 $3,753 $5,847 $5,352 $2,419 $1,029 $2,697 $2,670 $30,258 $3,026 - Deferred from 1999 $0 $0 $0 $0 $0 $0 $0 $0 $0 $0 $0 $0 - Tendered in 1999 $624 $0 $0 $0 $0 $0 $0 $0 $0 $0 $624 $62 Sub-total Rehabilitation $5,787 $2,443 $2,629 $6,813 $7,847 $7,352 $4,419 $3,029 $4,697 $4,670 $49,686 $4,969
Other $661 $2,024 $0 $0 $0 $0 $0 $0 $0 $0 $2,685 $269
Total Gross Expenditure $107,741 $73,207 $65,391 $61,560 $41,799 $57,653 $55,244 $56,014 $54,442 $58,910 $631,961 $63,196
Revenues/Recoveries - DC / DC Debenture Financed $72,131 $43,280 $41,230 $40,509 $20,748 $36,602 $34,193 $34,963 $33,391 $37,859 $394,906 $39,491 - DC Debenture Financed $0 $6,885 $2,880 $0 $0 $0 $0 $0 $0 $0 $9,765 $977 - Yonge Street Reserve $156 $0 $0 $0 $0 $0 $0 $0 $0 $0 $156 $16 - Roads Capital/Highway Reserve (1) $11,015 $0 $0 $0 $0 $0 $0 $0 $0 $0 $11,015 $1,102 - Contribution from Trust Funds $972 $936 $220 $0 $0 $0 $0 $0 $0 $0 $2,128 $213 - Other $2,416 $1,055 $10 $0 $0 $0 $0 $0 $0 $0 $3,481 $348 - Contribution from Capital (Tax Levy $21,051 $21,051 $21,051 $21,051 $21,051 $21,051 $21,051 $21,051 $21,051 $21,051 $210,510 $21,051 Total Revenue $107,741 $73,207 $65,391 $61,560 $41,799 $57,653 $55,244 $56,014 $54,442 $58,910 $631,961 $63,196
Source: "2000 Business Plan and Budget Detail," The Regional Municipality of York.
Notes: (1) Unspent portions of prior tax allocations for roads program. Exhibit 5 Region of York 1998 - 2021 Transportation Services Growth-Related Capital Program Contained in Development Charges Background Study (1998 dollars in millions) 1998 - 2021 1998 - 2021 1998 - 2021 Average Annual Roads Capital Transit Capital Total Capital Capital Program Program Program Program CAPITAL PROGRAM: Gross Cost 1,405.450 251.600 1,657.050 69.044 Less Site Specific and Other Dev Funds (7.460) 0.000 (7.460) Less Alternative Design Standards (45.000) 0.000 (45.000) Sub-total 1,352.990 251.600 1,604.590 66.858 Attributable to Development - Construction 689.326 - Other 317.170 - Less Alternative Design Standards (45.000) Growth-Related Capital Costs Before Adjustment 961.496 125.800 1,087.296 45.304 Targeted Cost Savings/Efficiencies (5%) 52.786 6.906 59.692 2.487 Sub-total 908.710 118.894 1,027.604 42.817 Net Regional Tax Levy Before Adjustment 391.494 125.800 517.294 21.554 Total After Targeted Cost Savings/Efficiencies 1,300.204 244.694 1,544.898 64.371
FUNDED FROM: Growth-Related Capital Costs Before Adjustment 961.496 125.800 1,087.296 45.304 Targeted Cost Savings/Efficiencies (5%) 52.786 6.906 59.692 2.487 Sub-total 908.710 118.894 1,027.604 42.817 Non-Growth Adjustment (1) 109.045 14.267 123.312 5.138 Adjusted Growth-Related Capital Costs 799.665 104.626 904.291 37.679 Development Charges 799.665 104.626 904.291 37.679 Average Annual Funding from Development Charges 33.319 4.359 37.679 37.679
Net Regional Tax Levy Before Adjustment 391.494 125.800 517.294 21.554 Non-Growth Adjustment (1) 109.045 14.267 123.312 5.138 Net Regional Tax Levy 500.539 140.067 640.606 26.692 Average Annual Funding from Regional Tax Levy 20.856 5.836 26.692 26.692
Total Average Annual Funding 54.175 10.196 64.371 64.371
Source: "Regional Municipality of York, Consolidated 1998 Development Charge Background Study," as amended in 1999.
Note: (1) 30% discount on non-residential component of development charge (offset from tax levy). Page 14 of 26
When the development charge program shown in Exhibit 5 is compared with the 2000- 2009 capital budget shown in Exhibit 4, several observations can be made:
C the average annual capital budget over the 2000-2009 period of $57.9 million for roads and major transit is lower than the average annual funding requirement of $64.4 million included in the development charge program suggesting that increased levels of funding may be necessary in the post-2009 capital budgets;
S the average annual tax levy funding of $26.7 million included in the development charge analysis is about $5.7 million (nearly 27%) higher than the $21 million average annual tax funding included in the 2000-2009 capital budget — the apparent shortfall in tax funding is even more dramatic when the rehabilitation portion of the capital program (average annual tax funding of nearly $5 million) is taken into account;
S the tax funding shown in the 2000-2009 capital budget is held constant at $21 million throughout the period — all other things being equal, growth in the assessment base should enable this level of capital effort to increase without an impact on tax rates, partially offsetting the apparent shortfall noted above;
S average annual spending on roads in the capital budget of $54.8 million is very close to the $54.2 million average annual spending on roads included in the development charge analysis — this illustrates the continued emphasis on road expansion that will be needed over the longer growth period included in the development charge program; and
S average annual spending on priority transit in the capital budget of $3.2 million is significantly lower than the $10.2 million average annual spending on priority transit included in the development charge analysis — the priority transit program will be phased in later in the period, presumably as the road expansion program is no longer capable of providing for increased traffic.
3.2 EXPANSION OF TRANSIT SERVICES WILL REQUIRE SIGNIFICANT INCREASES IN FUNDING The transportation planning that has taken place to date indicates that a significant shift to public transit will be necessary if congestion levels are not to seriously erode as growth occurs. A major expansion of the bus fleet and transit operations will be necessary in addition to implementation of the priority transit systems presently included in the Regional plans.
As noted in a recent report
“Unfortunately, trends in transit service levels and expenditures are moving in the wrong direction. Between 1995 and 1999, rides per capita, revenue hours of service per capita and per capita spending by the area municipalities have all declined. In the ten year period between 1986 and 1996, the Region’s overall transit modal split dropped from 11% to 8%.”9
9 “York Region Transit Project Interim Report,” June 2000, p.ii.
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Reversing this trend will require a major commitment of funding to not only extend the Yonge and Spadina subways to Highway 7, but also to significantly improve bus service and expand the fleet. Exhibit 6 illustrates the likely impact on transit operating costs and revenues under various modal split assumptions. As noted in the Interim Report from which this exhibit is taken “the different service scenarios for the future reflect our best estimate of what is necessary to achieve the Region’s modal split targets.”10 Exhibit 6 shows that by 2021, annual operating costs would climb to $104.9 million gross and $39.2 million net (after fare revenue) to achieve the “high” modal split target contained in the Region’s Official Plan. Net per capita costs would increase to $41.29 from the present level of $18.20. If assessment per capita remains at 1999 levels, this implies more than a doubling of tax support for transit operations by the year 2021.
Exhibit 7 illustrates a rough estimate of the expansion capital requirements necessary to support the various modal split targets. As shown, 792 buses would be necessary to achieve the “high” modal split target, an addition of 603 buses over 1999 levels. The total capital cost is estimated at $241.2 million representing an average annual capital cost of nearly $11 million over the 22-year period (many of the buses could be GO Transit buses which may be cost shared with other municipalities). For comparison purposes, Exhibit 8 shows historic capital spending on local transit over the 1990-1999 period. Gross capital expenditures (including fleet additions, fleet replacement and all other local transit capital expenditures) averaged only slightly over $2 million annually, reflecting the significant drop in transit capital spending throughout the mid-1990s.
Expansion of transit bus fleets can only be partially funded through development charges under the present Development Charges Act, 1997 (DCA). Under the DCA, the allowable level of growth-related capital funding that can be included in development charges is limited to the historic 10-year average service level that the municipality has achieved. In essence, only the status quo can be maintained through development charge funding.
Exhibit 9 illustrates the consequences of the restrictions imposed by the DCA. The table shows the maximum number of buses that can be funded from development charges relative to the total number of buses included in the growth-related capital budgets of selected municipalities.
For example, in both the towns of Markham and Richmond Hill, the growth-related capital budgets reflect the need to expand the bus fleets. The Markham plan is more aggressive, calling for the acquisition of 60 additional buses over the next ten years. Because the development charge is based on the historic 10-year average service level (shown at the top of the exhibit), however, only 18 of the 60 buses are included in the development charge. The remaining 42 buses (plus 10% of the cost of the 18 development charge buses) must be funded from taxes.
In Richmond Hill, 13 of the 18 expansion buses, are funded from development charges. The remaining 5 buses (plus 10% of the cost of the 13 development charge buses) are to be funded from taxes.
10 Ibid, p. 27.
York Region Policy Paper No. 8 Transportation Master Plan Funding Exhibit 6 Transit Operating Estimates Assuming Various Modal Split Scenarios (Conventional transit service) Service Comparable City 1999(1) 2021 Criteria (Calgary) Status Low(3) High(4) Quo(2) Population (Transit 576,870 950,000 950,000 950,000 819,000 Service Area) Annual Ridership 9,800 16,150 32,300 64,600 70,063 (000's) Revenue 424,000 703,000 1,149,500 1,596,000 1,400,000 Hours Buses 189 311 527 792 786 Rides Per 17.0 17.0 34.0 68.0 85.5 Capita Revenue Hours Per 0.74 0.74 1.21 1.68 1.68 Capita Population 3,052 3,052 1,800 1,200 1,042 per Vehicle Operating $27,865 $46,201 $75,545 $104,889 $113,500 Cost (000's) Net Cost $10,500 $17,290 $28,271 $39,228 $51,064 (000's) Net Cost Per $18.20 $18.20 $29.75 $41.29 $62.32 Capita Source: "York Region Transit Project, Interim Report," June 21, 2000, Exhibit 9.
Notes: (1) Includes GO Transit buses. (2) Mode split of 8%. (3) Mode split of 16.5%. (4) Mode split of 33% (Region of York Official Plan target). Exhibit 7 Capital Cost Estimate for Expansion of Bus Fleet as Contained in Various Modal Split Scenarios (Conventional transit service) 1999 2021 Status Low High Quo Buses (1) 189 311 527 792 Additional Buses 122 338 603 Capital Cost (000's) (2) $48,800 $135,200 $241,200 Average Annual Capital Cost (000's) (3) $2,218 $6,145 $10,964
Notes: (1) From "York Region Transit Project, Interim Report,", June 21, 2000. (2) Assumes capital cost of $400,000 per bus. (3) In constant 2000 dollars over 22 years. Exhibit 8 Area Municipalities Within the Region of York 1990 - 1999 Transit Historical Capital Expenditures (current dollars in 000's)
Total Average 1990 1991 1992 1993 1994 1995 1996 1997 1998 1999 1990-1999 Annual
Gross Capital Expenditures $3,392 $1,252 $300 $405 $419 $238 $846 $6,909 $2,725 $3,974 $20,459 $2,046 Capital Grants $2,111 $762 $277 $197 $146 $247 $670 $2,715 $2,284 $1,411 $10,820 $1,082 Net Capital Expenditures $1,281 $491 $23 $208 $273 ($10) $175 $4,194 $441 $2,563 $9,639 $964
Grants as % of Gross 62.2% 60.8% 92.4% 48.6% 34.9% 104.0% 79.3% 39.3% 83.8% 35.5% 52.9%
Source: 1990 - 1999 Financial Information Returns, line 10, schedule 6. Exhibit 9 Expansion of Bus Fleets is Limited by Historic 10 Year Average Service Levels Under the Development Charges Act Town of Townof City of Total Markham Richmond Hill Vaughan 10 Year Average Historic Service Level - Population per Vehicle 3,363 4,341 4,013 3,760 10 Year Average Historic Service Level - Population & Employment per Vehicle (1) 5,316 6,220 6,319 5,799 10 Year Growth Forecast - Population & Employment 98,063 83,284 125,042 306,389 Maximum Allowable Buses Over Next 10 Years From Development Charges 18 13 20 53 Buses in Growth-Related Capital Budget (1) 60 18 20 98 Growth-Related Buses Requiring Funding from Taxes 42 5 0 45 Required Tax Funding Over 10 Years (incl. mandatory 10% DC reduction) (3) $17,520,000 $2,646,000 $848,520 $20,553,812 Average Annual Tax Funding Over 10 Years (incl. mandatory 10% DC reduction) (3) $1,752,000 $264,600 $84,852 $2,055,381 Source: Development Charges Background Studies for the three selected municipalities.
Note: (1) Service level used for purposes of development charges. (2) Does not include any replacement vehicles, only fleet expansion. Vaughan limited growth-related bus additions to level that could be funded from development charges. (3) The Development Charges Act requires 10% of the allowable growth-related net capital costs to be funded from non-development charge sources (taxes). Page 20 of 26
In the City of Vaughan, the expansion plan for buses was limited to those that could be funded from development charges. Consequently there is only limited tax funding required, representing the 10% discount mandated by the DCA for transit services.
Exhibit 9 also shows the effect of combining the three municipalities for development charge purposes. Similar results are evident. In our opinion, in order to obtain more longer-term funding from development charges under the present legislation, municipalities will have to first ratchet-up transit capital service levels using tax funds.
Finally, while no estimates have yet been prepared, additional capital spending would be required for replacement of the expanded bus fleet. Note is also made that in discussion with Finance representatives from the area municipalities, it has been indicated that there are no specific reserves available for replacement of existing municipally-owned buses.
3.3 EXPANSION OF GO SERVICES WILL REQUIRE INCREASED REGIONAL FUNDING As discussed above in Section 2.0, the capital budget for GO Transit is to be increased in 2001-2010 to $1.8 billion or $180 million per year on average, an amount significantly higher than the 2000 budget contribution of $73 million for “state of good repair” (no expansion capital is included in the 2000 budget). The $1.8 billion includes $826 million ($83 million annually) for “state of good repair” and a capped amount of $983 million ($98 million annually) for growth and expansion, subject to securing Federal and Provincial funding.
As GO Transit expands its operations, the Region of York will participate in funding with other municipalities in the GTA and Hamilton-Wentworth.
The allocation formula for the growth and expansion component of the capital budget has been approved recently by the Greater Toronto Services Board for the three year period, 2001-2003. York Region’s share of the $98 million average annual budget for this period has been set at 13.8%, requiring capital funding for growth and expansion of about $13.6 million gross. If two-thirds of this amount were funded from senior governments, the Region’s net funding share would be about $4.5 million annually. A GO Transit development charge study is currently underway to determine how much of this amount can be included in development charges and how much will require tax funding.
4.0 SPECIFIC FUNDING NEEDS WILL BE ADDRESSED THROUGH THE MASTER PLAN PROCESS
The Transportation Master Plan will re-evaluate the transportation funding requirements for York Region as reviewed above in Section 3.0. Both expansion and system preservation (“state of good repair”) capital requirements will be identified as well as operating and maintenance costs for the preferred plan. The Master Plan will also review and update the portion of the capital funding plan that can be supported by development charges and identify the amounts to be funded from non-development charge sources. A
York Region Policy Paper No. 8 Transportation Master Plan Funding Page 21 of 26 range of revenue sources including municipal, provincial and federal sources as well as potential new user-fees will be considered.
4.1 FUNDING REQUIREMENTS WILL BE IDENTIFIED The Master Plan process will develop and test a series of transportation alternatives for York Region against a number of strategic transportation goals, leading to a preferred transportation plan for the Region. The financial analysis will identify the capital investment and operating costs/revenues required to implement the recommended infrastructure and operational improvements.
4.2 REVENUE SOURCES TO FUND THE PLAN WILL BE EVALUATED Funding sources for the capital components of the preferred plan will likely continue to be a combination of development charge revenue to support the growth-related portion of the program and property taxes with respect to the non-growth share (benefits to existing) and preservation capital. The operating and maintenance costs associated with the plan will be funded primarily through the property tax base and user charges (fare revenue for transit components).
Development Charges to Support the Plan Will Be Identified The development charge component will be estimated over the 30-year time-frame of the plan assuming a continuation of the methodology presently used by the Region for roads and priority transit. It is noted that in order to implement a priority transit infrastructure component in its development charge (for which the Region had no base historic level of service), the Region used the rationale that the overall transportation level of service (including roads and transit) was not increasing. The inclusion of priority transit projects therefore represented only a shift in the manner in which the transportation service was to be delivered in the future and was eligible for development charge funding. While it would appear that a similar rationale may be applied to the expansion of the bus fleet to accommodate growth when the responsibility for transit shifts to the Region from the area municipalities in 2001 (thereby enabling a greater number of buses to be included in the development charge calculation), there may be additional limitations imposed by the Development Charges Act, 1997, that will preclude this. This situation will be reviewed, and the component of the fleet expansion to be funded from development charges will be identified. The growth and expansion component of GO Transit capital requirements will also be incorporated. The analysis will identify the full cost recovery development charge consistent with the Development Charges Act, 1997. Non-growth portions of the growth-related capital forecast will be estimated for inclusion in the tax impact analysis.
Non-Development Charge Capital to Support the Plan Will Be Identified Non-development charge funding for the capital plan will be required to fund both the non-growth shares of growth-related projects and also the preservation capital costs required to ensure that the arterial road network and transit system assets remain in a state of good repair.
Tax Analysis will Indicate Impact on Region’s Taxpayers A 30-year tax impact analysis will be prepared to estimate property tax requirements to support the plan. This analysis will estimate tax impacts by area municipality within the Region, based on the tax supported capital costs and the estimated operating and
York Region Policy Paper No. 8 Transportation Master Plan Funding Page 22 of 26 maintenance costs (net of estimated non-tax revenues such as transit fares) of the transportation plan and an assessment forecast that reflects the residential, commercial and industrial structure supported by the plan.
The resulting tax rates will be compared to the Region’s and area municipal (for local transit) 1999 tax rates for transportation purposes to provide an indication of the likely impact of the plan on the Region’s taxpayers.
4.3 POTENTIAL ALTERNATIVE REVENUE SOURCES WILL BE IDENTIFIED The financial analysis will also identify potential additional new sources of revenue that may be available to support the preferred plan and comment generally on their applicability and the desirability of incorporating them. Some of these sources are shown below in Exhibit 10. Each of these, as well as others that may be identified during the course of the study, will be evaluated against criteria that could include: S user pay - the extent to which the tax or fee is paid directly by the user of the system; S transportation related - the extent to which the tax or fee is related to the transportation system; S impact on behaviour - the extent that the tax or fee increases transit use, or decreases auto dependency; and S ease of collection - how easily the tax or fee could be implemented.
Exhibit 10 POTENTIAL NEW REVENUE SOURCES
1. Access to Provincial/Federal Taxes S Gasoline Tax S Vehicle Registration Fee
2. User Pay Revenue Sources S Transit Fares S Road Tolling
3. Transfers from Senior Governments
4. Increased Tax Room
Each of the potential new revenue sources is discussed briefly in the following appendix.
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APPENDIX – POTENTIAL ALTERNATIVE FUNDING SOURCES
York Region Policy Paper No. 8 Transportation Master Plan Funding Page 24 of 26
Access to Provincial/Federal Taxes Would Need to Be Implemented by Senior Governments In addition to increasing existing municipal charges, new revenue sources are potentially available to provide revenue for the transportation system. Two potential revenue sources, gasoline taxes and vehicle registration fees, are taxes or fees directly related to transportation. However, funding transportation expenditures through these means would require the involvement of senior governments. Gasoline taxes are controlled by the federal and provincial governments and vehicle registration by the Province.
S Gasoline Taxes Are Transportation Related A gasoline tax is attractive in that it is based on the principle of user pay and a collection mechanism already exists. A gasoline tax also has the benefit of potentially encouraging behaviour by reducing auto use - the effect, of course, would depend on the size of the tax and on public acceptance or reaction. Overall, an additional gasoline tax or a share of existing federal and/or provincial gasoline taxes is an attractive revenue source to make some contribution to transportation funding.
S Vehicle Registration Fees May Make a Contribution The Province of Ontario currently charges residents of southern Ontario $74 per year to licence each vehicle. As with the gasoline tax, a collection mechanism already exists and there is a link to the principle of user pay (although somewhat weaker than the gas tax). The drawbacks of this approach are that vehicle registrations do not reflect actual system use and an increase in the annual fee could be viewed by the public simply as a tax increase.
User-Pay Revenue Sources In principle, directly relating use of the transportation network to cost through tolling and transit fares has the potential to encourage responsible use of transportation resources. While transit fares are easy to increase (with attendant consequences), the feasibility of introducing broad-based road use pricing remains questionable at this time.
S Increased Transit Fares May Not Be Desirable The question of increased fares for GO Transit was considered in a recent study by Dr. R.M. Soberman11. It was found that it may or may not be possible to eliminate the operating deficit. Using a range of assumptions, a fare increase in the order of at least 50% would be necessary; however it was cautioned that the approach was simplistic and intended to give a crude indication of the fare increases that might be necessary. Recovering all operating and capital costs was found to be impossible due to the likely loss of customers and their associated revenue.
In fact, increasing existing user charges for the GO Transit system or local transit may not raise the necessary funds and would not bring about the behavioural changes desired. Raising fares not only unfairly punishes those without the means for alternate travel sources, but it also makes transit less competitive in relation to auto use. Transit services must compete against the cost of the alternative - usually driving. With the exception of Highway 407, drivers can make unlimited use of the road system with no direct cost to them. This only encourages additional automobile use, which adds to congestion and increases the need for road network expansion.
11 “Understanding GO Transit: Transition to the Greater Toronto Services Board,” Richard M. Soberman for GO Transit, 1999.
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S Road Tolling Could Apply Mainly to Expressways Electronic road tolling technology is making it increasingly possible to initiate broad- based road pricing. In the short term, road pricing has limited technical and political feasibility. The shift to general fees for road use, having always been “free” in the past, would be a significant societal change. This could be a far greater hurdle than road pricing technology.
The only location where road pricing is immediately feasible in the short term is on the 400-series highways and other expressways. The political acceptability of tolling existing roads is a major issue. However, it could be combined with limited road widening by adding “high occupancy toll” (HOT) lanes to some expressways. These would be reserved for transit vehicles, which would pay no tolls; cars with one occupant would pay a full toll; cars with two occupants would pay a lesser toll; and cars with three or more occupants would pay no toll. Again, it is likely that this option could only be applied in the short-term to the 400- series highways. In the longer term, however, HOT lanes and more widespread road tolling will warrant more detailed attention both as a significant funding source and as a major incentive for more efficient use of the transportation system.
Through privatization of Highway 407, road tolling for totally new facilities has been relatively easy to implement and has been accepted by the public. For other new facilities (including the east and west Highway 407 extensions) tolls are likely to be the primary funding source. However, this approach has little application for regional road and public transit funding.
Transfers from Senior Governments Could Be Funded From Existing Transportation Sources Given the importance of the GTA region, municipalities including the Region of York could continue to lobby the Province and/or Federal government for increased transfers to fund much needed capital.
The “State of Good Repair” program and the Sheppard subway are just two examples of the Province of Ontario recognizing the benefit these systems provide to an area much greater than that in which these physical systems reside. On the downside, there have been problems with granting formulas in the past - some municipalities not paying “full dollars” lost focus and made ineffective and inefficient expenditures. Clearly, if this funding method were to be used, the funding formula would have to be carefully constructed.
Nevertheless, when one realises that the provincial and federal governments annually extract very substantial revenue via transportation related taxes and fees, a strong case can be made that it would only be fair to return some portion back for improved transportation in the area from which it came. Fairness aside, it would also be good business, recognising the importance of the GTA as the major economic engine of both Ontario and Canada.
York Region Policy Paper No. 8 Transportation Master Plan Funding Page 26 of 26
Increased Tax Room Offers an Easy-to-Implement Method of Transfers to Municipalities The Province has recently gone through a rationalization of the services that it feels it should be responsible for providing. The LSR restructuring was undertaken to make municipalities more responsible for their spending. An extension of the LSR exercise could be used to free up tax room and allow municipalities to fund transportation more fully via the property tax system, without property tax increases, if the Province were to take the funding responsibility for other services that are now the responsibility of the municipalities.
For example, social service is one service that would make sense to be controlled and totally funded at the Provincial level. If the current social assistance responsibilities of the upper-tier municipalities became the sole responsibility of the Province, it would create substantial tax room that could be applied to transportation funding.
The examples above will be evaluated recognizing that significant policy changes and new funding arrangements may play a role in addressing the GTA’s and York Region’s growing urban transportation problems. If these new arrangements could be effectively pursued, funding would rely less on property taxes, and more heavily on a variety of dedicated user fees, such as gasoline taxes, levied at the local and regional level respectively.
York Region Policy Paper No. 8 Transportation Master Plan Funding TRANSPORTATION MASTER PLAN
KEY ISSUES, CHALLENGES AND STRATEGIC OPTIONS
For Discussion Purposes Only
December 2000 TABLE OF CONTENTS
1.0 INTRODUCTION...... 1
2.0 GROWTH TRENDS AND PROJECTIONS ...... 2
2.1 Context and Trends...... 2 2.2 Population and Employment Projections ...... 4
3.0 REGIONAL OFFICIAL PLAN AND GROWTH MANAGEMENT...... 7
3.1 Official Plan – Regional Structure...... 7 3.2 Official Plan - Transportation ...... 7 3.3 Growth Management...... 9
4.0 SUMMARY OF EXISTING TRAVEL PATTERNS ...... 10
4.1 Analysis of Cordon Count Data ...... 10 4.2 Selected Data from the 1996 Transportation Tomorrow Survey ...... 11
5.0 KEY TRANSPORTATION ISSUES AND CHALLENGES...... 12
5.1 Key Issues ...... 12 5.2 From Issues to Challenges...... 13
6.0 STRATEGIC OPTIONS ...... 14
Prepared By: Cansult Limited December 2000
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1.0 INTRODUCTION
A critical component of the York Region Transportation Master Plan is the development of a long-term transportation vision, which will set the context for the more detailed plan. The preparation of this discussion paper is a key step in developing the transportation vision. The purpose of the paper is to stimulate discussion on the key issues and challenges that the Region currently faces and subsequently the range of strategic directions that are open to the Region to pursue. Through public reaction to this paper and the results of a special facilitated workshop on this topic, it is intended that a preferred strategic direction will emerge. This preferred strategic direction will form the basis for the development of the Region’s transportation vision.
The preparation of this paper follows the completion of eight policy papers and two background reports. Policy papers were prepared on the following topics:
1. Public Transit; 2. Air Quality and the Environment; 3. Transportation Demand Management (TDM) and Telecommuting; 4. Transportation System Management (TSM) and Intelligent Transportation Systems (ITS); 5. Pedestrians and Cycling; 6. Goods Movement and the Economy; 7. Funding Issues; and 8. Asset Management.
These papers outlined a range of policy options with respect to each specific topic and suggested the most appropriate directions for the Region to consider. This paper builds on the findings and conclusions of the policy papers and builds on the information presented in the two background reports: Assessment of Urban Structure and Assessment of the Transportation System.
This paper begins with an overview of existing travel patterns and growth trends and projections. This is followed by a summary of York Region Official Plan objectives and the Region’s Growth Management Plan, which leads into key issues and challenges. The paper concludes with the presentation of four strategic options that are characterized and compared using a number of indicators.
All readers are encouraged to submit comments on this paper to both the Region and the Consultant Team by contacting the individuals below:
Mr. Tom AppaRao Mr. Dick Gordon Manager, Transportation Planning Master Plan Project Manager Transportation and Works Department Cansult Limited Regional Municipality of York 60 Renfrew Drive 17250 Yonge Street Suite 300 Newmarket, ON L3Y 6Z1 Markham, ON L3R 0E1 Phone: (905) 895-1200 x5024 Phone: (905) 470-2010 x229 Fax: (905) 836-0191 Fax: (905) 470-2060 E-mail: [email protected] E-mail: [email protected]
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2.0 GROWTH TRENDS AND PROJECTIONS
2.1 CONTEXT AND TRENDS The Greater Toronto Area (GTA), which encompasses over 5 million people, is the economic heartland of Ontario and Canada. The area continues to attract significant numbers of migrants from the international sphere, from other provinces and from within Ontario.
The GTA has recovered strongly from the global transformation and restructuring of the economy that occurred over the last decade and continues into the 21st century. Both population and employment growth levels were below expectations in the early to mid 1990’s but have since recovered. Recently, approximately 100,000 jobs have been created annually in the GTA and over 100,000 people per year have arrived into the area to live. There is a general consensus amongst economists that the GTA has the long-tem potential to continue to provide the appropriate economic climate that will attract investment and lead to the creation of jobs and the migration of people into the area.
Since the creation of the Region in 1971, York Region’s population has more than quadrupled (as shown in Figure 1) rising from 169,000 in 1971 to 258,000 in 1981, 523,000 in 1991 and an estimated 730,000 by year-end 2000. This period of rapid growth was driven primarily by the migration of people into the Region who arrived in increasing numbers when the York-Durham servicing scheme was developed opening up large areas of serviced land available for development.
Relative to the GTA and Canada, York Region currently has a population that is more family oriented, younger, wealthier and better educated. Throughout the last 10 years trends have emerged that indicate York Region will become increasingly diversified. York’s population is evolving into a more urban, cosmopolitan character. A slowdown in family formation, a more varied housing mix, increases in the number of lone parent families and people living alone, and a greater diversity in the ethnic composition of the population are trends that are expected to continue into the future.
Employment growth has increased at a higher rate than population growth (see Figure 2), an indicator of the strength of the Region’s economy. York’s total employment increased form 49,000 in 1971 to 110,000 in 1981, 248,000 by 1991 and reached 370,000 by year-end 2000. Annual growth rates averaged 8.6% in the 1970’s and 1980’s. During the recession of the early 1990’s employment growth averaged 3.3% and has since rebounded to over 6% since 1996.
The global marketplace and the speed and intensity of technological innovation are transforming the Region’s economy. Information processing, capital-intensive manufacturing, office automation and telecommunications are key factors that will continue to have significant impacts on future employment. Knowledge based industries that attract highly skilled employment opportunities will be the major employment generators in the future of York Region. The Region’s economy is in step with the global trend toward an information-based economy. Strong growth in recent years in the business services sector in an important indication of this trend. In 1988 this sector accounted for less than 6% of employment in the Region. By 1998 this sector accounted for 12% of employment and 34,000 workers. Since the 1980’s an increasing proportion of growth has come from the office sector, which includes information and cultural industries, finance, insurance and real estate, business services and public administration.
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FIGURE 1: YORK REGION POPULATION GROWTH 1971 to 2000
800000 700000 600000 500000 400000 300000 200000 100000 0 1971 1976 1981 1986 1991 1996 2000
Source: Statistics Canada; York Region Planning and Development Services Department
FIGURE 2: YORK REGION EMPLOYMENT GROWTH 1971 to 2000
400000 350000 300000 250000 200000 150000 100000 50000 0 1971 1976 1981 1986 1991 1996 2000
Source: Statistics Canada; York Region Planning and Development Services Department
York Region’s share of the GTA population and employment has continued to increase as a result of these robust population and employment growth levels. From 1986 to 1999 York’s share of the GTA population increased from 9.4% to over 13%. Strong growth in the population and economic base in the Region throughout the 1970’s, 1980’s and 1990’s puts York Region in the forefront to provide opportunities for future growth well into the 21st century.
York Region is well positioned within the GTA market to take advantage of future growth opportunities. A number of key factors support this view: S An excellent transportation network exists that links York Region with the City of Toronto and the surrounding regions in the GTA;
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S The Region has a large short and long-term supply of vacant employment lands that support employment opportunities; S The Region has the servicing capacity to support the increasing numbers of people and jobs expected to locate in York; S The Region has a well developed and relatively new servicing and transportation infrastructure; and S The Region has a stable and well-diversified tax base, including a comprehensive development charge rate structure.
It is therefore anticipated that the Region will continue to maintain a healthy share of the GTA’s growth well into the 21st century.
2.2 POPULATION AND EMPLOYMENT PROJECTIONS The horizon year for the Transportation Master Plan is 2031. Previous forecasts to 20261 , which were incorporated into the latest consolidation of the Region’s Official Plan, were therefore recently extended to 2031 by the Regional Planning Department for use in the development of the Master Plan. However, it should be noted that the latest (2031) forecasts have no official status. For this reason, only the Regional totals of 1.358 million people and 734,000 jobs are released at this time.
The population and employment forecasts by area municipality for 2026 are summarized in Tables 1 and 2 respectively.
TABLE 1: YORK REGION POPULATION FORECAST 1996 2026 % % Growth Population Population Growth Increase of Region
Aurora 36,000 75,000 39,000 108 6 East Gwillimbury 20,420 61,000 40,580 199 6 Georgina 35,920 74,000 38,080 106 6 King 18,820 35,000 16,180 86 2 Markham 179,070 348,000 168,930 94 25 Newmarket 59,000 98,000 39,000 66 6 Richmond Hill 105,060 219,000 113,940 108 17 Vaughan 136,890 330,000 193,110 141 29 Whitchurch- Stouffville 20,480 41,000 20,520 100 3
York Region 611,660 1,281,000 669,340 109 100
GTA 4,790,000 7,100,000 2,310,000 48 (estimated) % Region of GTA 13 18 29
1 York Region Population, Household and Employment Forecasts to 2026, June 28, 2000. York Region Planning Department
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TABLE 2: YORK REGION EMPLOYMENT FORECASTS 1996 2026 % % Growth Employment Employment Growth Increase of Region
Aurora 14,620 33,000 18,380 126 5 East Gwillimbury 4,635 20,000 15,365 331 4 Georgina 7,525 22,000 14,475 192 4 King 6,125 12,000 5,875 96 1 Markham 97,590 212,000 114,410 117 28 Newmarket 27,240 46,000 18,760 69 5 Richmond Hill 43,090 119,000 75,910 176 19 Vaughan 83,315 215,000 131,685 158 32 Whitchurch- Stouffville 7,470 17,000 9,530 128 2
York Region 291,610 696,000 404,390 139 100
2.2.1 Summary of Key Assumptions S The continuing attractiveness of York Region as a place to live and work and the continuing long-term economic viability of the Greater Toronto Area (GTA); S The fertility rate remains below the 2.1 babies per woman needed to replace the population; S Mortality rates continue their long-term decline to account for anticipated increased in life expectancy; S International immigration to Canada remains constant at the mid-range of the current Federal immigration policy. This results in approximately 215,000 people arriving into the country on an annual basis; S The forecast assumes net annual migration levels to the GTA of approximately 62,000 to 2006, and thereafter declining to within the 40,000 to 45,000 range to 2026; S Household headship rates, that reflect the number of people within specific age groups that are household maintainers, are adjusted slightly to account for recent economic indicators and then held constant to 2026; and S Housing preferences are adjusted to reflect the increasing diversity of York Region’s future population and labour force.
2.2.2 Summary of Projections S York Region’s population is anticipated to reach over 1 million people by the year 2011 and approximately 1.36 million by the year 2031. This represents an increase of over 630,000 from the 2000 year end estimate of 730,000, and an average annual growth rate of 2.8%. S The number of households in York Region is projected to increase to approximately 465,000 by 2031, up from the current estimate of approximately 210,800; S The average household size will decline over the long-term, but not as rapidly as in the past, decreasing from 3.3 persons per household to approximately 2.9 persons per household by 2031; S The age composition of York Region’s population will shift from a younger to an older population with the senior’s population increasing from 8% to 20% of York’s total; S York Region’s employment will grow at an average rate of over 2.6% per year increasing from 370,000 jobs in 2000 to 734,000 jobs by 2031.
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2.2.3 Conclusions York Region is expected to continue to experience dramatic population and employment growth well into the 21st century. The majority of population growth will be due to migration of people into the Region. Employment growth will occur from job opportunities arising from providing services to this rapidly growing population and from developing the Region’s serviceable supply of employment lands.
York Region will experience a demographic shift towards an older, more diverse society. Levels of natural increase will remain below replacement levels. The labour force growth rate will decline as the baby boom generation retires. It is anticipated that immigration levels into Canada will continue at high levels. The changing age structure of the projected population and the arrival of large numbers of immigrants from a variety of cultural backgrounds will put increased pressures on the Region’s services, programs and facilities.
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3.0 REGIONAL OFFICIAL PLAN AND GROWTH MANAGEMENT
3.1 OFFICIAL PLAN – REGIONAL STRUCTURE The Regional Official Plan was originally approved in 1994 and the July 13, 1999 publication represents the most recent Office Consolidation. The expected York Region share of GTA growth is based on the Region’s long term ‘Vision’. York Region’s ‘Vision’ requires a careful balance of population and economic growth with the need to protect the environment and create healthy and prosperous communities.
Policies within York Region’s Official Plan outline a regional structure and growth management approach that articulates the Region’s ‘Vision’ and describes where and how the Region will grow. The regional structure and growth management approach includes the following: S The establishment of an urban envelope within which most of the projected growth will occur; S The establishment of a target of 20% of the Region’s forecast population increase to occur in existing built-up areas; S The establishment of a system of centres and corridors within the urban envelope that provide a focus for mixed-use development; S The identification of a proposed network of transportation and public works to service anticipated development; S The protection of agriculture, rural and resource areas; and S The identification and protection of a system of greenlands.
The Regional Official Plan contains policies that promote an integrated mix and supply of various housing types to ensure the needs of the people who live and work in the Region are met. The Plan also contains economic development policies which support the centres and corridors structure and generally provide that employment growth be directed to areas that are fully serviced and accessible to public transit.
Figure 3 is Map 5 from the Official Plan which shows the Regional Structure including the location of Urban Areas, and Towns and Villages. A list of Regional structure and growth management objectives contained in the Official Plan has been consolidated in Table 3.
3.2 OFFICIAL PLAN - TRANSPORTATION Chapter 6 of the Official Plan deals with Regional infrastructure including the road and transit networks, cycling and walking, airports and goods movement. Some of the more strategic policies included in the Plan deal with the following matters: S A hierarchy of roads designed to support the urban structure, including centres and corridors; S The need for all road improvements to consider the requirements of all forms of transportation; S The need, within centres and corridors, to give priority to the needs of transit, pedestrians and cyclists; S Development of a fully coordinated public transit system; S Establishment of a 30-year transit usage target of 33% for all peak period trips in Urban York; S Implementation of a Regional rapid transit network consisting of improved GO Rail services, extensions to the Yonge and Spadina subways, transitways in the Yonge Street and Highway 7/Highway 407 corridors and a network of high occupancy vehicle (HOV) lanes:
York Region Transportation Master Plan Source: Map 5 from York Region Official Plan FIGURE 3
Key Issues, Challenges & Strategic Options Regional Structure Page 8 of 16
S Integration of bicycle path and walkway systems into the design of transportation facilities; S Need for a fully functional airport in the Region; S Utilization of Provincial highways and the Regional road system as a truck goods movement network.
Figures 4 and 5 are Maps 9 and 10 from the Official Plan which show the Future Arterial and Freeway Network and the Conceptual Transit Network respectively. A list of transportation objectives contained in the Official Plan has been consolidated in Table 4.
Table 3: Consolidated List Of Regional Structure and Growth Management Objectives from York Region Official Plan Community A. To develop diverse, self-sufficient, accessible, safe, green, Building (Section economically vibrant, pedestrian-oriented, accessible communities 5.2) through excellence in planning and urban design.
Centres B. To create a well-designed system of centres to focus residential, (Section 6.3) institutional and business activities. Corridors C. To identify corridors as mixed-use transit spines that link urban and (Section 5.4) regional centres. Hamlets D. To retain the rural character of hamlets while permitting limited (Section 5.5) growth primarily through infilling. Agriculture Policy E. To support a healthy and viable agricultural industry as an essential Area element of the Region’s economy. (Section 5.6) F. To ensure that uses that would result in conflicts with agricultural operations are not established in productive farming areas. Rural Policy Area G. To retain the rural character of lands in the Rural Policy Area. (Section 5.7) H. To protect the viability of existing agricultural operations. Mineral Aggregate I. To protect York’s mineral resources for possible future extraction Resource Areas and to ensure rehabilitation of extraction areas. (Section 5.8) Estate Residential J. To provide for a limited supply of estate residential lots, based on a Development demonstrated need and in a manner that will minimize the impact (Section 5.9) on the natural environment, on agricultural operations and on servicing costs. Consents K. To limit lot creation by consent in the rural portions of the Region. (Section 5.10) Resort/Recreational L. To provide for the development of prestigious, high quality, Development resort/recreational developments in the Rural Policy Area, based on (Section 5.11) a demonstrated need and in a manner that will minimize the impact on the natural environment, on agricultural operations and on servicing costs.
York Region Transportation Master Plan Source: Map 9 from York Region Official Plan FIGURE 4
Key Issues, Challenges & Strategic Options Future Arterial & Freeway Network Source: Map 10 from York Region Official Plan FIGURE 5
Key Issues, Challenges & Strategic Options Conceptual Transit Network Page 9 of 16
Table 4: Consolidated List Of Transportation Objectives from York Region Official Plan The Road A. To plan and protect street and road corridors so that they can be Network developed in a manner that is supportive of the future urban and rural (Section 6.1) structure of York Region and that can accommodate future transportation demands.
B. To ensure that roads are improved in a manner that is supportive of all modes of transportation including walking, cycling, automobile, transit and truck and that minimizes conflicts between these different modes.
C. To increase the total person-carrying and goods-carrying capability of the regional street and road network in a manner that is consistent with the overall goals and objectives of this Plan. The Transit D. To provide transit service that is convenient, accessible and equitable Network to all residents of York. (Section 6.2)
Cycling, Walking E. To promote and facilitate walking, cycling and trails. and Trails (Section 6.3) Goods F. To facilitate the movement of goods, improve the level of safety and Movement minimize the risk associated with the transportation of dangerous (Section 6.6) goods.
3.3 GROWTH MANAGEMENT In the fall of 1998, the Region initiated a Report Card exercise to gauge public satisfaction on different aspects of the Official Plan including various Regional services. During this process, the public expressed concern about the pace of growth in the Region. Specific concerns were raised regarding traffic congestion, human services provision, lack of convenient and timely transit and degradation of the natural environment. As a result, Regional staff were directed to examine the pace of growth in the Region. This led to the preparation of a discussion paper on this topic and the conduct of a symposium on May 10, 1999 at which over 200 stakeholders attended. The discussion paper entitled “Refining the Region’s Growth Management Strategy” provided a synopsis of the Region’s current growth management approach and recommended seven initiatives to refine the current system, including the preparation of a York Region Transportation Master Plan, formalization of the annual review of the Region’s 10 year capital works plan, monitoring the component of the capital works program associated with the Development Charges By-law and Up-Front Financing Policy, improved coordination of supply and timing of residential development with the Area Municipalities, and improved communications with the public and other stakeholders. Steps are now being taken to pursue these new growth management initiatives.
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4.0 SUMMARY OF EXISTING TRAVEL PATTERNS
4.1 ANALYSIS OF CORDON COUNT DATA A volume/capacity (V/C) analysis has been completed for a number of York Region screenlines, using 1998 information from the York Region Cordon Count program. This analysis is summarized on Figures 6 and 7 for the a.m. and p.m. peak hour periods respectively. In the a.m. peak period the York-Peel and Highway 404 screenline demands are close to or at capacity in the peak direction. The peak direction of travel across the screenlines is typically into the Region. The only exception to this is the York-Toronto screenline, where southbound demand is higher than the northbound. It is noteworthy that the northbound movement has a V/C ratio of 0.75 during this period, indicating that there is little reserve capacity for travel from Toronto to York.
During the p.m. peak period the peak direction of travel is generally out of the Region, indicating that the Region is a net generator of trips. The screenline v/c ratios are typically 10 to 20 percent or more, higher than the a.m. peak period values. A number of demands are equal to the theoretical road capacity, including the northbound demand across the York-Simcoe screenline and the westbound demand across the Highway 404 screenline. The northbound demand across the York-Toronto screenline is also equal to the capacity.
It should be noted that both a.m. and p.m. peak period volumes on the “spine” links of Highway 7 and Yonge Street are much closer to capacity than the screenlines as a whole. Severe congestion frequently occurs on these facilities causing significant delay and extensive queuing. Most notable are the sections of Highway 7 through the Highway 400 corridor and also in the Woodbine/Highway 404 corridor. Volumes on Highway 407 westbound also approach capacity in the section between Highway 427 and Highway 400, with “stop-and-go” conditions frequently occurring on weekdays.
The screenline comparison of volume to capacity for the a.m. and p.m. peak periods show that there are a number of locations where demand is approaching capacity. However, the most pressing capacity problem is focused on the portions of screenlines within the southern tier municipalities, where volumes on key roads have reached the level where delays are significant in the peak direction of travel, causing extensive queuing and affecting the reliability of public transit services.
Truck traffic has also been analyzed using information from the York Region Cordon Count program. Data from the year 1998 has been used. The truck percentages are remarkably consistent across the Region. The a.m. peak period percentages extend over a narrow range from 11 to 14 percent. This is a substantial percentage of the traffic stream. During the p.m. peak period, trucks form a smaller percentage of the overall stream, but again extend over only a narrow range. From 7 a.m. to 7 p.m., truck traffic forms a larger component than it does during either peak period, ranging from 11 to over 15.5 percent.
The Highway 400 and York-Peel screenlines have notably higher than average truck percentages. This reflects the high level of industrial activity in the City of Vaughan. The high truck percentages on these screenlines indicate that special attention may be required in terms of accommodating commercial traffic in this part of the Region.
York Region Transportation Master Plan V/C ratio E 0.08 W 0.18
V/C ratio V/C ratio E 0.17 N 0.27 W 0.38 S 0.90
V/C ratio N 0.38 S 0.84 V/C ratio N 0.41 S 1.28
V/C ratio V/C ratio E 0.09 E 0.84 W 0.34 W 1.12 V/C ratio E 0.88 W 0.75
V/C ratio N 0.28 V/C ratio N 0.25 S 0.78 V/C ratio S 0.79 N 0.28 S 0.80
V/C ratio E 0.77 V/C ratio V/C ratio E 0.62 W 0.55 E 0.91 W 0.65 W 0.59 V/C ratio E 0.32 W 0.95
LEGEND V/C > 1.00 V/C 0.90 - 0.99 V/C 0.80 - 0.89 V/C ratio V/C ratio V/C ratio V/C < 0.80 N 0.72 N 0.81 N 0.40 Screenline S 0.93 S 1.04 S 0.63 v/c - volume/capacity ratio FIGURE 6
Key Issues, Challenges & Strategic Options Road Congestion in York Region - 1998 AM V/C ratio E 0.43 W 0.07
V/C ratio V/C ratio E 0.33 N 0.92 W 0.33 S 0.38
V/C ratio N 1.09 S 0.49 V/C ratio N 1.04 S 0.50
V/C ratio V/C ratio E 0.31 E 1.19 W 0.10 W 0.90 V/C ratio E 0.74 W 0.95
V/C ratio N 0.82 V/C ratio N 0.74 S 0.32 V/C ratio S 0.32 N 0.80 S 0.40
V/C ratio E 0.62 V/C ratio V/C ratio E 0.82 W 0.82 E 0.54 W 0.74 W 0.67 V/C ratio E 0.98 W 0.28
LEGEND V/C > 1.00 V/C 0.90 - 0.99 V/C 0.80 - 0.89 V/C ratio V/C ratio V/C ratio V/C < 0.80 N 0.99 N 1.11 N 0.75 Screenline S 0.83 S 1.01 S 0.58 v/c - volume/capacity ratio FIGURE 7
Key Issues, Challenges & Strategic Options Road Congestion in York Region - 1998 PM Page 11 of 16
4.2 SELECTED DATA FROM THE 1996 TRANSPORTATION TOMORROW SURVEY In terms of transit modal split, York was similar to Durham and Peel in 1996 – in York, total transit trips from the Region during the 6-9 a.m. period were 8 percent of all trips (Durham – 8 percent; Peel – 9 percent); however, GO Rail trips from York were only 1 percent compared to 4 percent in Durham and 3 percent in Peel. Auto driver trips in each Region were approximately 65 percent. By contrast, total transit trip origins from Toronto were in the range of 28 percent (27 percent local transit and 1 percent GO Rail). A similar pattern exists for 24 hour statistics where total transit modal split for York was 6 percent compared to 5 percent in Durham, 7 percent in Peel and 22 percent in Toronto.
Auto ownership data shows that York Region has a higher percentage of 2-vehicle households than either Durham or Peel (51 percent vs. 47 and 44 percent). York also has the highest percentage of households with four or more vehicles. This is likely a function of the dispersed nature of urban development in York, contained in more discrete nodes that development in Peel. Other factors which may contribute to the high number of vehicles per household in York are the low levels of GO rail service available in the Region. By contrast, Peel and Durham have proportionately higher levels of GO rail service.
Median trip length is another factor which may assist in defining problematic travel conditions in York, which contribute to congestion in the main travel corridors. The median trip length in Toronto was 8.0 km for auto drivers and 7.4 km for local transit. By contrast, the median trip lengths in York were 11.4 km for auto drivers and 14.8 km for local transit trips. In Peel, the median lengths were 10.3 km for auto drivers and 10.9 km for local transit trips. In Durham, the lengths were 12.5 km for auto drivers and 9.5 km for local transit trips. The median transit trip length is the highest in York, highlighting the long distances riders must travel. That likely plays a role in discouraging transit use. The Durham and Peel local transit systems are focused to a large degree on transporting riders to terminals such as GO stations. In York the terminals play a more minor role, and more service is focused on long distance trips to Toronto or between internal municipalities.
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5.0 KEY TRANSPORTATION ISSUES AND CHALLENGES
As noted in the Introduction, two background reports and eight policy papers have been prepared in this initial phase of the Master Plan study. Through this effort many issues have been identified. In large part, the topics selected for policy papers reflected the Study Team’s initial thoughts on key issues and challenges, and identified areas where changes of direction should be considered. Based on the Study Team’s subsequent review of these reports, the issues briefly discussed below have been identified as most important. Following this, the key issues will be translated into challenges.
5.1 KEY ISSUES a) Can York afford to supply sufficient transportation capacity to match the rapid growth in travel demand? S population and employment growth is continuing at a rapid pace S significant amount of growth expected in Greenfield areas, which will likely result in longer trip distances S residential and employment areas are still largely segregated S York Region capital budget has increased recently, but may not be able to keep pace with growth due to other demands and funding limitations b) Does York want a society increasingly more dependent on the automobile? S auto ownership is increasing (68% of households have 2 or more vehicles) S transit modal split is declining (only 8% in 1996) S air quality is deteriorating partly due to increased emissions from motor vehicles S public transit investment is well below road system investment c) Does York need additional sources of funding to accommodate growth and manage the resultant travel demands? S municipalities only have access to property taxes and development charges S no contributions from Provincial or Federal governments S GTSB has no mandate to raise funds through sales taxes, fuel taxes or other mechanisms S cost of providing additional road and transit capacity will be much higher in the future due to urbanization d) Should York travel be so heavily oriented to Toronto? S 26% of York trip destinations in a.m. peak period S north-south freeways and arterials are heavily congested in south York Region S reverse commute (northbound in the a.m. peak and southbound in the p.m. peak) also heavy S transit modal split for trips to Toronto is relatively high e) How can York Region provide for efficient movement of goods to support its economic vitality? S goods movement is currently dominated by trucks and is continuing to increase S high percentages of commercial vehicles in traffic stream throughout the day, including peak periods S extended peak periods add to commercial vehicle delays S growing public pressure for truck restrictions
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f) How should the Region deal with the threat to its air quality posed by the rapid growth in auto and truck travel? S deteriorating air quality is linked to increasing vehicle emissions S incidence of asthma and other respiratory ailments is increasing S implementation of electric and hybrid engines has been slower than expected
g) Are current and planned development densities high enough to support efficient public transit? S York’s urban boundaries are expanding S York residents want more space than the City of Toronto offers S development approvals often reflect lower than planned densities
5.2 FROM ISSUES TO CHALLENGES Once the issues have been properly formulated, the challenges associated with them often become self-evident. Table 5 lists various challenges related to each issue identified in the previous sub-section. Some are challenges if the issue (question) is answered in the affirmative; others if answered in the negative. Together they represent a comprehensive list of transportation related challenges facing York Region.
Table 5: Key Issues and Challenges ISSUES CHALLENGES 1. Can York afford to supply A. How to achieve development growth aspirations with reduced sufficient capacity to match increases in travel demand (i.e. smart growth). rapid growth in travel demand? B. How to accommodate greater portions of travel demand by non- auto modes. C. How to secure additional sources of funding. 2. Does York want a society A. How to accommodate greater portions of travel demand by non- increasingly more dependent auto modes. on the automobile? D. How to make travelling by auto more difficult and/or expensive. E. How to reduce the length of auto trips. 3. Does York need additional C. How to secure additional sources of funding. sources of funding to F. How to make best use of existing infrastructure, so as to accommodate/manage growth minimize new capital expenditures. and resultant travel demands? G. How to allocate limited funds to most cost-effective projects. H. How to maintain our infrastructure in a state of good repair. 4. Should York travel be so I. How to develop a more self-contained York Region. heavily oriented to Toronto? 5. How can York Region provide J. How to spread truck traffic to off-peak periods. for efficient movement of goods K. How to enhance attractiveness of rail mode. to support its economic vitality? L. How to support more efficient movement of goods by truck. 6. How should the Region deal B. How to accommodate greater portions of travel demand by non- with the threat to its air quality auto modes. posed by the rapid growth in E. How to reduce the length of auto trips. auto and truck travel? M. How to reduce emissions from autos and trucks. 7. Are current and planned N. How to make new development more transit friendly, without development densities high necessarily increasing densities. enough to support efficient O. How to rely more on infill development. public transit?
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6.0 STRATEGIC OPTIONS
Based on discussions among members of the consultant team, we have concluded that there are four distinct strategic options that should be thoroughly debated as follows:
Option 1: Constrained Funding (status quo) Option 2: Auto Focus Option 3: Transit Focus Option 4: Transit Focus with Auto Disincentives
A brief description of each follows below.
The Constrained Funding option reflects a status quo scenario where significant additional capital funding is not forthcoming, leading to a situation where, for the most part, the Region must rely on property taxes and development charges for capital improvements. This funding constraint would inevitably constrain growth of the transportation system and could force the Region to both aggressively pursue travel demand and/or growth management initiatives in order to get the most value out of its existing transportation system. Under this scenario, transit modal split would probably stay at today’s level of about 8%.
In the Auto Focus option, increases in travel demand would be largely accommodated by new and widened roadways (with significantly increased capital funding). The result would be that transit modal split would decrease further, perhaps to 4 or 5%. However, this should not be interpreted as a “do nothing” transit option as some transit capital improvements would be necessary, primarily oriented to enhancing existing connections to the City of Toronto.
The Transit Focus option envisages a major shift in capital expenditures from road to transit. GO Rail services would all be upgraded, the Yonge and Spadina subways extended to Highway 7 and transitways implemented in the North Yonge and Highway 7/407 corridors. Capital expenditures for some road improvements would also be provided, but road expansion would take place at a slower rate. Transit capital expansion would be supplemented with widespread (in South York) application of surface transit priority measures such as exclusive bus or HOV lanes, traffic signal priorities and other special intersection treatments, together with other transit incentives. Growth in travel demand would be accommodated, but largely through a significant increase in transit modal split (perhaps a doubling to about 16%).
Option 4 (Transit Focus with Auto Disincentives) is a scenario which seeks to maximize transit modal split through the widespread application of road pricing schemes and/or parking charges, in addition to the service improvements and transit incentives included in the Transit Focus option. Using the carrots and sticks analogy, Option 3 is carrots (for transit) only, whereas Option 4 is both transit carrots and road sticks. Under this scenario, peak period transit modal split in South York could conceivably reach 25-30%.
Twelve indicators have been identified in an attempt to fully characterize the four strategic options, as follows: S compatibility with Regional Official Plan S degree of public sector intervention S development implications S degree of capital expansion
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S auto ownership and dependence S environmental and social impacts S peak period auto modal split S peak period auto occupancy S emphasis on Travel Demand Management (TDM) initiatives S emphasis on Transportation System Management and Intelligent Transportation System initiatives S peak period level of service: road and transit S implications for Region’s capital program and operating budget
Table 6 uses the above indicators to compare the four strategic options. The indicators can also be used as evaluation criteria, in an attempt to select a preferred strategic option. In assessing the options, it is possible that a hybrid option or options will emerge, as the best parts of various options are sought. Such an assessment has purposely not been done in an attempt to stimulate a broader discussion and debate. It is hoped that through such a process, a consensus opinion will emerge on a preferred option.
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Table 6: Summary of Strategic Options Option 1 Option 4 Option 2 Option 3 INDICATORS “Constrained Funding” “Transit Focus plus Auto “Auto Focus” “Transit Focus” (Status Quo) Disincentives” 1. Compatibility with Official S low S low S high S high Plan 2. Public Sector Intervention S could range from modest to S modest S significant S significant very significant 3. Development Implications S significant limits on growth S minimal limits on growth S significant intensification in S significant intensification in likely S little intensification urban areas & in areas well urban areas & in areas well S some intensification in urban served by future transit served by future transit areas & in areas well served by transit 4. Capital Expansion S limited road & transit S substantial road; limited transit S very substantial transit S very substantial transit 5. Auto Ownership & S same as today (high) S increases S slightly reduced S significantly reduced Dependence 6. Environmental/Social S increased slightly S increased significantly S same as today or slightly S significantly reduced Impacts ( eg. emissions) reduced 7. Peak Period Auto Modal S could increase or decrease S increases S decreases S decreases significantly Split slightly from current 79% 8. Auto Occupancy S same as today (low) S slightly lower S slightly higher S significantly higher 9. TDM* Emphasis S very strong (reduce demand) S modest S medium S strong 10. TSM/ITS* Emphasis S potentially strong (road & S modest TSM, but strong ITS S medium (roads) strong S strong (road & transit) transit) on road side (transit) S very significant transit S modest transit priorities S significant transit priorities priorities 11a. Peak Period Level of S worse (greater levels of S worse S slightly worse S better (reduced levels of Service -Road congestion) congestion) 11b. Peak Period Level of S slightly better (more service, S slightly better (more service S considerably better S much better Service – Transit but subject to greater levels but subject to greater levels of of congestion) congestion) 12a. Implications on Region’s S would likely increase slightly, S significantly increased S significantly increased S significantly increased Capital Program but increase constrained by program to administer, but program to administer, but program to administer, but current sources of funding Region’s $ share remains Region’s $ share remains Region’s $ share remains (property tax base & about the same (due to new about the same (due to new about the same (due to new development charges) sources of revenue being sources of revenue being sources of revenue being available) available) available) 12b. Implications on Region’s S significant increase to obtain S significant increase due to S very significant increase S very significant increase Operating Budget most from existing systems expanded road system primarily due to major primarily due to major (heavy emphasis on improvements to bus service, improvements to bus TSM/ITS initiatives) contributions to operations of service, contributions to subway extensions into the operations of subway Region & heavy emphasis on extensions into the Region TSM/ITS initiatives & heavy emphasis on TSM/ITS initiatives *TDM: Transportation Demand Management; TSM: Transportation System Management; ITS: Intelligent Transportation Systems
York Region Key Issues, Challenges & Transportation Master Plan Strategic Options TRANSPORTATION MASTER PLAN
TRANSPORTATION VISION
Submitted to the York Region Transportation & Works Committee
June 20, 2001
April 2001 TABLE OF CONTENTS
1.0 INTRODUCTION...... 1
2.0 THE PREFERRED STRATEGIC DIRECTION ...... 2
2.1 Urban York: Transit Focus Plus Non-Auto Incentives ...... 2 2.2 Rural York: Balanced Roads and Transit Initiatives...... 2
3.0 OBJECTIVES OF THE PREFERRED STRATEGIC DIRECTION ...... 4
4.0 THE TRANSPORTATION VISION...... 5
5.0 ACHIEVING THE VISION ...... 8
6.0 ROLE OF THE TRANSPORTATION MASTER PLAN...... 12
Prepared By: Cansult Limited April 2001
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1.0 INTRODUCTION
Why is a Transportation Vision Needed? A Public Opinion Survey of York residents was conducted in October and November 2000 as part of the Public Consultation Process for the Transportation Master Plan study. The purpose of the survey was to gauge the residents’ views about the transportation challenges and opportunities facing the Region. The following issues and concerns were identified by large majorities of the residents:
S The Region is growing too fast (75%) S Road construction is not keeping up with demand (74%). S More concentrated development is needed to combat urban sprawl (62%)
More than 8 in 10 residents think it is important to encourage people to shift from the use of private vehicles to alternate means of transportation, primarily to reduce pollution and traffic congestion.
There is increasing awareness that these problems are a result of our dependency on the private automobile, a trend that pervades all aspects of our communities, but which essentially conflicts with our desire to achieve more liveable and sustainable cities. A fundamental reason for defining a new vision of transportation is to reverse past trends, and to ensure that future transportation and land use planning decisions will enable our urban communities to become more liveable. Indeed, a number of initiatives throughout the 90's lend evidence to the growing support for this view.
S A growing tide of similar concerns about traffic congestion, urban sprawl, and the health and environmental impacts of automobile use are being expressed by communities across the GTA, Canada, North America and beyond.
S The appearance of a Sustainable Transportation Vision based on a generic model first introduced in 1993 by the Transportation Association of Canada, in many recent transportation plans.
S The inclusion of a similar Transportation Vision by the Greater Toronto Services Board based on the work of its member municipalities, to guide the development of the Strategic Transportation Plan for the GTA and Hamilton-Wentworth
S The commitments made by the Government of Canada to achieve substantial reductions in greenhouse gas emissions under the Kyoto Agreement.
Expressed in more practical terms, development of a new Vision for Transportation based on principles of sustainability will enforce and support the broader Vision 2021 Statement and the Regional Structure and Growth Management Strategies set out in the York Region Official Plan. The Vision can also be used to guide Regional and municipal council decisions concerning "unplanned" transportation proposals or development proposals with major transportation impacts, which appear from time to time. Finally, the visioning exercise itself is based on a region-wide public consultation process, which ensures that the interests and concerns of as many of York's residents as possible have been taken into account.
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2.0 THE PREFERRED STRATEGIC DIRECTION
A workshop was conducted on January 8, 2001 to discuss strategic transportation options for York Region. A Discussion Paper on Key Issues, Challenges and Strategic Options outlining four strategic options was sent to all of the attendees prior to the workshop. These four options - Constrained Funding (Status Quo), Auto Focus, Transit Focus and Transit Focus with Auto Disincentives - their pros and cons and possible variations, formed the basis of the discussion.
Based on the results of the Workshop and subsequent review by the consultant team, a Preferred Strategic Direction has been developed, which is essentially, a variation of Option 3 - Transit Focus. The Preferred Option is called “Transit Focus Plus” and represents a hybrid of Options 3 and 4 in urban York and a hybrid of Options 2 and 3 in rural York. A schematic diagram and a generalized list of the major initiatives considered to be consistent with the Preferred Strategic Direction are depicted in Figure 1. The following is a brief synopsis of the two hybrid components, which together comprise the preferred strategic direction for the Region.
2.1 URBAN YORK: TRANSIT FOCUS PLUS NON-AUTO INCENTIVES Option 3 the Transit Focus option envisaged a major shift in capital expenditures from road to transit. GO Rail services would be upgraded, the Yonge and Spadina rapid transit service extended to Highway 7 and transitways implemented in the North Yonge and Highway 7/407 corridors. Although capital expenditures would be provided for strategic road improvements, expansion would occur at a slower rate. Transit capital expansion would be supplemented with widespread application of surface transit priority measures such as exclusive bus or HOV lanes, traffic signal priorities and other special intersection treatments, together with other transit incentives. In addition, the Transit Focus Option would also include the provision and enhancement of sidewalks and street lighting along all bus routes. Under Option 3 a significant portion of future growth in travel demand would be accommodated through a sizeable increase in transit modal split, perhaps a doubling from the present 8% to about 16%.
The fourth option (Transit Focus with Auto Disincentives) containing all of the elements of Option 3 plus auto disincentives, primarily in the form of widespread road pricing schemes and/or parking charges, was rejected by most workshop participants as being too punitive. Instead, they preferred the application of incentives to encourage alternatives to single occupant vehicles (SOV) together with a short term implementation thrust, so that the positive impacts of these transit and other non-auto initiatives could be realized immediately.
Thus the Preferred Strategic Direction for Urban York should reflect all of the elements of Option 3, plus the positive elements of Option 4 (i.e. incentives for non-auto modes rather than auto disincentives).
2.2 RURAL YORK: BALANCED ROADS AND TRANSIT INITIATIVES A number of people who attended the public consultation centres suggested that there needed to be a different plan for the rural areas, one that recognizes the greater dependence on the auto and the different role of transit in rural communities. This view was also prevalent at the Strategic Options Workshop. As a result the preferred option in Rural York should reflect a more balanced auto and transit direction.
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In the original Option 2 – (Region-Wide) Auto Focus, increases in travel demand would be largely accommodated through new and widened roadways and would entail significantly increased capital funding. Even though it also contained some essential transit capital improvements primarily focussed on enhanced connections to the City of Toronto, the overall option would result in a reduction to today’s transit modal split level for York as a whole.
The Balanced Auto and Transit Approach for Rural York recognizes the greater dependence on autos, but nevertheless, seeks to significantly improve transit so that transit is a legitimate option, at least for longer distance commuting to Urban York and the City of Toronto. For the most part, the Preferred Strategic Direction will pursue road improvements as necessary to address peak period transportation deficiencies. It will, however, also seek to provide a basic level of public transit service for rural communities including the provision of all day service to nearby urban municipalities. The addition of parking facilities at GO stations will also facilitate the provision of point-to-point express bus services.
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3.0 OBJECTIVES OF THE PREFERRED STRATEGIC DIRECTION
The direction of the preferred "Transit Focus Plus” Option can also be portrayed through the following set of objectives.
1. To improve the competitive position of public transit, particularly in Urban York through development of an integrated network of facilities and services, implementation of a variety of transit incentives, including priority measures for surface transit vehicles using the road system and enhancement of the pedestrian infrastructure system.
2. To develop and implement strong, land use and growth management policies which reduce the need to travel, reduce average trip lengths, support a higher proportion of travel by non- auto modes and achieve an improved directional balance of travel on York Region roads and transit services.
3. To support the efficient and safe movement of goods by all modes.
4. To support strategic improvements to the highway and road network, which would complete missing links in the network, support the planned urban structure for the Region, support improved transit services, support the movement of goods and/or relieve critical network bottlenecks.
5. To implement travel demand management initiatives in order to minimize the increase in peak period auto travel.
6. To support and promote cycling and walking as alternative modes of travel to the automobile.
7. To develop a significant role for York Region employers in implementing the Transportation Vision and Plan.
8. To ensure that urban transportation decisions protect and enhance the environment.
9. To provide universal access to public transportation facilities and services for the physically challenged.
10. To secure authority from the Province, in concert with the GTSB and other GTA municipalities, to develop alternative sources of funding for transportation infrastructure and services.
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4.0 THE TRANSPORTATION VISION
Based on the various technical analyses and the consultation process referred to above, the Transportation Vision proposed for the York Region Transportation Master Plan focuses largely on reducing automobile dependence and moving the Region closer to achieving the goal of more liveable communities. The design of the Vision is based on the Transportation Association of Canada's Generic Vision for Urban Transportation 2023 tailored to the York Region context. The 30 year model first presented by TAC's Urban Transportation Council in 1993 has been widely accepted and endorsed since then.1 Integration with the City of Toronto's Transportation Vision, developed in April 2000 to complement the City’s new Official Plan, was also considered important due to the City's prominent transportation role in the GTA.
The following statements comprise the Transportation Vision proposed for York Region. It should be emphasized that these statements represent desired end-states, not existing conditions.
1. Integrated Land Use and Transportation Planning The Regional Official Plan outlining the Regional Structure, Growth Management Strategy and Regional Infrastructure including the Transportation component for the future of the Region has been amended. The Transportation Vision, physical plan, policies and principles contained in the Transportation Master Plan are reflected in the Official Plan. It emphasizes a system of centres and development nodes characterized by a broad mix of uses, compact, pedestrian oriented, and safe and accessible, connected by a system of corridors. As well, transit has funding and operating priority in these corridors to provide an opportunity for mixed-use development and redevelopment.
2. Coordinated Transportation Planning The York Region Official Plan and Transportation Master Plan conform to the broader transportation vision and plan for the GTA. Local Official Plans have been amended to conform to the Urban Structure and Transportation plans, policies and principles reflected in the Regional Official Plan. This has facilitated fully coordinated and integrated land use and transportation planning between the Regional and local municipalities throughout the planning and development processes.
Short/medium term Community Plans have been approved by the area municipalities. The plans emphasize communities that are diverse and self-contained with a range of opportunities to work, recreate and be housed. They are designed so that people have the choice of using transit, walking or cycling throughout the community and beyond. Policies are also included to encourage street design and building locations that create vibrant pedestrian-friendly streetscapes.
3. Regional Multi-Modal Transportation Plans Transit, highways, arterials, parking and truck routes are planned and coordinated across the Region. A regional parking strategy is in place, which supports the Transportation Vision and Master Plan.
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4. Reduced Dependence on Automobiles The percentage of trips made by walking, cycling, transit and high occupancy automobiles are all increasing, while the percentage of trips made by single occupant vehicles is decreasing. Improved accessibility to public transit has made transit, in terms of cost and convenience for individual travel, more competitive with the private automobile, to the point where it is a viable option for most York residents, workers and visitors. Also, the implementation of traffic engineering and street design programs to encourage walking and cycling are enhancing the streetscape and attracting more people away from their cars.
5. Reduced Travel The average distance and time for peak hour commuter travel are decreasing. Integrated land use and urban design supported by strong growth management policies has led to fewer and shorter vehicle trips for individual travel.
6. Comprehensive TDM Strategy A comprehensive Region-wide Travel Demand Management Strategy is in place, encouraging a wide variety of initiatives, many of them area specific. York Region's major employers support these initiatives through participation in area-wide Transportation Management Associations or through their own independent programs.
7. Goods Move Efficiently and Safely A comprehensive system of regulations and facilities, including inter-modal facilities has been established to support the efficient and safe movement of goods. The economic competitiveness of the Region has been significantly enhanced. In addition, conflicts between residential communities and goods movement have been minimized.
8. Universal Access to Public Transit for Physically Challenged The physically challenged have universal access to public transportation facilities and services.
9. Infrastructure: “Greater Use" and “In Good State of Repair” All parts of the road and transit network serving the Region are being well utilized. Peak period travel on road and transit facilities represents a smaller percentage of daily totals. During peak periods, there is an improved two-way utilization of infrastructure. These changes have been achieved largely through strategic improvements to the highway and road network to complete missing links; through Transportation System Management (TSM) initiatives including Intelligent Transportation Systems (ITS) to support transit priority and improved traffic flow; through increased self-containment - meaning there are more jobs available for York residents within their own Region; and through a better balance of housing and employment opportunities throughout the Region. Roads, bridges and buses are in a good state of repair.
10. Strong Protection for the Environment There are strong safeguards in place for the protection of the natural environment. Air pollution from motor vehicle sources is declining.
11. Adequate Funding is in Place A variety of alternate funding sources for transportation improvements are in place. These constitute stable, long-term revenue sources and provide confidence of continuing adequate
York Region Transportation Master Plan Page 7 of 12 funding for future transportation improvements. The Region and the Greater Toronto Services Board have legislative powers to apply a wide range of pricing mechanisms such as user fees or a retail sales tax to assist in financing the complete range of transportation services being provided. As well, the federal and provincial governments have agreed to contribute funding towards GTA transportation improvements and programs on an ongoing basis, with the funds being allocated to specific projects and/or municipalities through the Greater Toronto Services Board (GTSB). Finally, the role of public-private partnerships is developing and the transportation system operates within an environment that acknowledges the public interest.
12. Effective Public Consultation A well-informed public provides the needed political support, which enables Regional and local councils to make effective decisions on urban development and transportation systems to serve York residents. York Region employers have played a significant role in the public consultation process, communicating and increasing the public’s understanding of the costs and long-term benefits of implementing the new Transportation Vision and Plan.
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5.0 ACHIEVING THE VISION
Achieving the future state represented by the Vision will take considerable time. As a starting point, Regional and area municipal councils need to coordinate decision-making and ensure that specific actions are implemented by York Transit and relevant operating departments. Public policy instruments or levers will be needed, together with a common set of Land Use and Transportation Principles to guide future transportation decisions. i) Policy Instruments Policy Instruments (or levers) cover the range of authority that can be exercised by regional and municipal councils that directly or indirectly influence performance of the transportation system. Table 1 provides some examples of the types of levers over which municipal councils have control.
Table 1: Regional / Municipal Policy Instruments for Achieving the Transportation Vision POLICY INSTRUMENT ELEMENTS Activities (Permitted land uses) Official Plans, Zoning Densities (e.g. Intensification in Corridors and around transit nodes) and Secondary Plans Travel Demand Management Mixing of Land Use Mid-Block Road Rights-of–Way Project Timing (by route and mode) Transportation Allocation of Funds: Capital Investment Preservation/rehabilitation of infrastructure Expansion of infrastructure Transit vehicle replacement Urban Design Building Heights and Setbacks Pedestrian, Bicycle and Transit Friendly Street Design Transportation Design Standards Choice of Technology Capacity Level of Service Parking Supply Loading and Unloading Facilities
Operating Budgets Transit Cost Recovery Targets Maintenance and Operations Priority Treatment for Transit/ HOV or reserved bus lanes Truck Routes Regulation Traffic Control (Includes ITS) Parking (on-street and off-street) Rights of Other Transit Operators (e.g. GO Transit, TTC) Competition from Private Sector Operators Objectives and Targets (e.g. Cost recovery for transit) Pricing Mechanisms (e.g. Development charges/ legislation) Parking Adapted from “A Transportation Vision for the City of Toronto Official Plan.” (Toronto Plan Report, April 2000)
York Region Transportation Master Plan Page 9 of 12 ii) Land Use and Transportation Principles To move towards reduced automobile dependency and the end-state represented by the Vision, a set of 25 principles have been proposed and should be adopted to guide land use planning and transportation decisions in the Region. These principles are similar to those proposed for the City of Toronto in the report entitled “A Transportation Vision for the City of Toronto Official Plan.” They can be grouped into various categories as summarized in Table 2.
Table 2: Land Use and Transportation Principles to Support the Vision Category Principles Confirm concept of 'transit supported concentrated development with higher density development allowances' within Regional Centres and Transit Corridors Zoning related to transit supported development must be finalized prior to budget approval for the construction of higher order transit lines and stations. Secondary Plan Policies and Urban Design Standards for buildings and Land Use and developments, which promote human activities at “street level” and along city Urban Design sidewalks in designated centres and corridors. Approval of development applications based on considerations such as accessibility for pedestrians and cyclists, access to transit stops and stations and cost of transportation servicing. Urban forms and street design that encourage walking and cycling. Region should create overall Travel Demand Management Strategy aimed at encouraging travelers towards more efficient modes and fewer and shorter vehicle trips.
Travel Area municipalities and major employers should play a major role in the Demand implementation of specific TDM programs. Management Preparation of Secondary Plans and the Development Review Process should be used as opportunities for consideration of TDM Measures and Plans. Region and Area Municipalities should encourage and support the formation of TDM Associations. Assign priority for capital investment in new public transportation services and facilities based on: - Increases in overall transit system ridership and mode split - Contribution to achieving overall goals and objectives of Regional and local Official Plans, such as rapid transit in the designated transit corridors and park- Transit and-ride facilities to serve rural parts of the Region. Expansion and Operations Maximize opportunities for cost-effective inter-connections between York Region transit services, the TTC, GO Transit and other inter-regional bus services Encourage ancillary para-transit services in rural parts of the Region that cannot be served effectively by conventional transit services. Establish policy for transit services in rural areas.
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Table 2: Land Use and Transportation Principles to Support the Vision, cont’d Category Principles Assign transit priority for the use of street space on all roads and major intersections in the designated transit corridors, and high frequency bus routes Require continuous arterial and mid-block collector roads for transit services. Develop Regional Parking Strategy as a framework for the development and efficient operation of appropriately sized parking facilities in designated Centres and Corridors Roads, Parking and Designate HOV or reserved bus lanes during AM and PM peak periods Traffic Preferential treatment for high occupancy, “car share” and fuel efficient Engineering automobiles in all publicly owned parking facilities. Introduce Bicycle Routes or Lanes in order to create a network for cyclists. Implement traffic engineering and street design programs to encourage walking and cycling in urban centres and designated transit corridors. Recognize the importance of efficient truck movement for the economic competitiveness of the urban centres and the Region. Develop innovative, stable long-term alternatives for funding improvements to the transportation system. Seek approvals from the Province and the GTSB for legislative powers to implement pricing mechanisms for transportation services provided in the Region. Funding Openness to role of public-private partnerships in supporting the transit-focused Vision. Seek clarification about the basis for decisions on priorities and funding of inter- regional and other GTA scale transportation projects.
It is important to understand that because these principles are integral to the Vision, they must be considered in making decisions affecting land use and transportation. The commitment to achieving the objectives embodied in the Preferred Strategic Direction also requires significant change in the approach to planning and operations.
Since the Preferred Strategic Direction and Vision encompass a broad mix of objectives and represent the interests of many constituents, there will be conflicts among the objectives and the associated principles. Such conflicts may arise over the principles related to transit priority, bicycle lanes and efficient goods movement. For example, introducing HOV or reserved bus lanes will reduce road capacity for single occupant vehicles and likely result in increased congestion for some, as well as the increased emissions in the short term, or until such time as other objectives of the Vision are achieved. Thus, every principle will not apply in every case and in the process of implementing the Transportation Plan, different tradeoffs will be appropriate in different areas of the Region.
Because land use planning is probably the single most important determinant of travel patterns, it is these decisions that will play the dominant role in determining how far the Region will move
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towards reducing automobile dependency and achieving liveable communities. This underscores the importance of the Regional Official Plan and the need for local Official Plans to conform to the goals and objectives of the broader planning document. However, it should be stated that the relationship between land use and transportation performance is cyclical, and that the access provided by the transportation system also has a strong influence on land use. Moreover, while land use has a strong influence on travel patterns, it is not the only influence. Experience has also shown that it is easier to change transportation policy where decisions are made at the regional level, than to change land use policy, where decisions are more sensitive to local concerns.
To expedite the desired changes, the Region and the area municipalities should adopt the Transportation Vision and the Principles embodied in it as an important component of the Transportation Master Plan.
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6.0 ROLE OF THE TRANSPORTATION MASTER PLAN
The Vision and the associated principles, once adopted or modified as the basis of planning, must be translated into a course of action for achieving the implied end state. These actions guided by the Vision and associated principles, will be reflected in the Regional Official Plan and the long term Transportation Master Plan. The Master Plan document itself will spell out these actions in two broad categories, namely,
S Formal Land Use And Transportation Policies, and S Priorities for Transportation Capital Investment
As well, the formal land use and transportation policies, the priorities for transportation capital investment, and the integrated long term road and transit network plan should all be incorporated into the Regional Official Plan.
A key distinction between policies and investment priorities is their relative financial impact. Many policies can be pursued without funding, while priorities for capital investment require funding commitments. Nevertheless, in order to solicit funding assistance from senior governments or approval for mechanisms to generate new revenues for transportation, it is important to have some idea of the magnitude of funds required. Thus priorities and funding needs must be established at the earliest possible time.
Since the Vision is essentially one of reducing automobile dependency, these policies and priorities should focus on improving the attractiveness of using public transportation. The residents who attended the public consultation sessions for the Master Plan study suggested that such transit initiatives should be focused on employment areas, regional corridors and the provision of convenient transit during peak periods, so that the positive impacts could be realized immediately.
Early implementation of these actions will also serve as a gauge of how the transportation system that eventually emerges actually corresponds to the Vision.
Over the long term, the Vision implies that general transit enhancements and TDM strategies for more efficient use of road space on a Region-wide basis, in combination with appropriate land use policies, are the most important means of improving the competitive position of public transportation and reducing automobile dependence. Despite the current uncertainty concerning available transportation funding, it is incumbent on the Region to reach early consensus on a variety of investment priorities for future transit expansion.
______Footnote
1 The Transportation Association of Canada's “Generic Vision for Urban Transportation in 2023” has been formally endorsed by such notable organizations as the National Round Table on the Environment and the Economy who called it “perhaps the most influential (sustainable transportation) vision statement currently in Canada”. Similarly, the Organization for Economic Cooperation and Development cited it as an example of "best thinking on environmentally sustainable transportation in Canada".
York Region Transportation Master Plan