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A Case Study of Provincial Impact on Municipal Transportation Building Cycling Infrastructure: A Case Study of Provincial Impact on Municipal Transportation and Land-Use Policies in Hamilton, Ontario By Gaelen Pierce A Thesis submitted to the Faculty of Graduate Studies of The University of Manitoba in partial fulfillment of the requirements for the degree of MASTER OF CITY PLANNING Department of City Planning University of Manitoba Winnipeg Copyright © 2016 Gaelen Pierce ABSTRACT This research examines the emergence of cycling-supportive land-use and transportation policies in Ontario and Hamilton, Ontario between 1990 and 2016. The focus of this thesis is on two questions that have been unexplored in previous research: (1) what cycling-supportive policies emerged in Provincial and Municipal government during this time?; and (2) what role, if any, did the Provincial position on cycling play in the development of Hamilton, Ontario cycling policies? A primary and secondary document review was undertaken to identify patterns between historical Provincial and Municipal policies. Three types of results are presented: (1) an examination of amendments to the Ontario Planning Act, emphasizing its effect on the role of policy in Ontario, the structure of the Ontario planning system, and on Municipal conformity; (2) a detailed review of emergent cycling- supportive policies and trends in Ontario and Hamilton, Ontario between 1990 and 2016; and (3) an analysis of evidence showing the influence of Provincial cycling-supportive policies on Hamilton plan policies. This research concludes that (1) novel cycling-supportive policies have emerged at both the Municipal and Provincial levels during the research period, and (2) evidence exists that Provincial land-use and transportation policies have influenced Hamilton’s cycling policy over the research period. ii ACKNOWLEDGEMENTS This thesis would not have been possible without the help of Dr. Rae Bridgman, Nancy Smith Lea, and David Linton. Thanks to them for their time, support, and helpful criticism. Thanks to my family, my wife, and friends for their unconditional support over the past several years. iii Table of Contents 1. Introduction ................................................................................................................. 1 1.1. Introduction and Context .................................................................................... 1 1.2. Problem Statement and Key Questions ............................................................... 3 1.3. Assumptions and Limitations ............................................................................. 4 1.4. Ethics................................................................................................................... 5 1.5. Overview of Thesis Structure ............................................................................. 6 2. Literature Review........................................................................................................ 8 2.1. Infrastructure and Cycling in GTHA and Abroad .............................................. 8 2.2. Research on Comparative Policy Review ........................................................... 9 2.3. Canadian Policy Research ................................................................................. 10 2.4. American Policy Research ................................................................................ 13 2.5. Policies Identified as Supporting Cycling......................................................... 14 3. Research Methodology ............................................................................................. 17 3.1. Research Methods ............................................................................................. 17 3.2. Case Study ........................................................................................................ 19 3.3. Policy Analysis ................................................................................................. 22 4. Overview of Key Legislative Changes ..................................................................... 29 4.1. Commission on Planning and Development Reform in Ontario (CPDRO) ..... 29 4.2. Harris Conservatives ......................................................................................... 31 4.3. Liberals Return to Power .................................................................................. 32 4.4. Liberals Retain Leadership ............................................................................... 33 4.5. Overview of Changes ........................................................................................ 34 5. Overview of Key Provincial Policies and Plans ....................................................... 35 5.1.1. CPDRO Recommendations/1994 PPS ......................................................... 35 5.1.2. 1996 PPS ...................................................................................................... 37 5.1.3. 2005 PPS ...................................................................................................... 39 5.1.4. 2014 PPS ...................................................................................................... 40 5.2. Provincial Plans ................................................................................................ 42 5.2.1. MTO Revised Bicycle Policy (1992) ........................................................... 42 5.2.2. Greenbelt Plan (2005) .................................................................................. 44 5.2.3. Growth Plan for the Greater Golden Horseshoe (2006) ............................... 45 5.2.4. The Big Move (2008) ................................................................................... 47 iv 6. Overview of Key Municipal Bicycle Plans and Policies .......................................... 50 6.1. Municipal Plans ................................................................................................ 50 6.1.1. Hamilton-Wentworth Official Plan Office Consolidation (1990) ................ 50 6.1.2. Hamilton-Wentworth Official Plan (1995) .................................................. 51 6.1.3. Urban and Rural Hamilton Official Plan (2013) .......................................... 52 6.2. Municipal Cycling Plans ................................................................................... 54 6.2.1. Hamilton-Wentworth Regional Bicycle Network Study (1992) .................. 54 6.2.2. Shifting Gears (1999) ................................................................................... 56 6.2.3. Shifting Gears (2009) ................................................................................... 57 7. Research Questions Answered .................................................................................. 60 7.1. Summary of Emergent Cycling Policies ........................................................... 60 7.1.1. Emergent Provincial Cycling Policies .......................................................... 61 7.1.2. Emergent Municipal Cycling Policies .......................................................... 70 7.2. Reflections on the Influence of Provincial Cycling Policy ............................... 76 7.2.1. Evidence of Provincial Policy Influence ...................................................... 76 7.2.2. Legislative Requirements ............................................................................. 82 7.2.3. Policy Language ........................................................................................... 85 8. Conclusion and Takeaways....................................................................................... 90 8.1. Questions for Further Research ........................................................................ 95 9. References ................................................................................................................. 97 Appendices ...................................................................................................................... 109 Appendix A: The Legislative Framework for Planning.............................................110 Appendix B: Review of Provincial Policies and Plans...............................................179 Appendix C: Review of Municipal Policies and Plans ..............................................321 Appendix D: Example of Policy Table......................................................................427 v List of Acronyms AMCTO – Association of Municipal Managers, Clerks and Treasurers of Ontario AMO – Association of Municipalities of Ontario AT – Active Transportation BCA – Business Case Analysis BRT – Bus Rapid Transit CBD – Central Business District CIP – Community Improvement Plan CIPREC – Canadian Institute of Public Real Estate Companies DPS – Development Permit system EA – Environmental Assessment (as defined by the Environmental Assessment Act) EBR – Environmental Bill of Rights ESA – Environmentally Significant Area ESAIEG – Environmentally Significant Area Impact Evaluation Group GGH – Greater Golden Horseshoe GHG – Greenhouse Gas GTHA – Greater Toronto and Hamilton Area GTTA – Greater Toronto Transportation Authority HTA – Highway Traffic Act HWCCS – Hamilton-Wentworth Community Cycling Survey HWRCC – Hamilton-Wentworth Regional Cycling Committee RBAC – Regional Bicycle Advisory Committee (Hamilton-Wentworth) LRT – Light-Rail Transit MMAH – Ministry of Municipal Affairs and Housing MPAC – Municipal Property Assessment Corporation MTO – Ontario Ministry of Transportation
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