Bowen Island Municipality Snug Cove Action Plan
Ferry Marshalling Options for Snug Cove
Transportation Working Group
Phase 1 Report
Elizabeth Ballantyne Eric Sherlock Karen Wristen Gil Yaron
December, 2006 ______
Contents
1. Executive Summary, 1
2. Project Outline, 2 Background TWG Terms of Reference Method
3. Ferry Marshalling Location Options, 4 Location Options Terminology Definition of Location Options
4. Document Review, 6 A. Core Documents B. Supplementary Documents
5. Matrix Development, 11 Description Stage One – Extracts from Core Policy and Transportation Documents Stage Two – Preliminary Assessment Matrix: South Side Stage Three – Assessment Matrix: Government/Loop Road Options The Criteria The Assessment Matrix A. Policy-based Assessment Matrix B. Impact Assessment Matrix
6. Ferry Marshalling Location Options – Conclusion, 20
Figures, 23
Schematic of Location Options A. Ferry Marshalling Location Options: Government Road, Loop Road, South Shore
Examples of Government Road Location B. McElhanney/BC Ferries Concept G C. Opus Hamilton/Ekistics Concept
Examples of Loop Road Location D. McElhanney/BC Ferries Concept F2 E. BIM Ferry Advisory Committee Hybrid Loop Concept July 2005
Example of South Side Location F. South Side Terminal/Ferry Marshalling Drawing
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Appendices
1. Documents List: Core and Supplementary
2. Matrix Development (Stage One): Extracts from Core Policy Documents 2a. Policy Extracts Matrix 2b. Policy Extracts Text
3. Matrix Development (Stage One): Extracts from Core Transportation Documents Transportation Extracts Matrix
4. TWG Terms of Reference
5. TWG Members
6. Correspondence 6a. Bowen Heron Watch, September 26, 2006 6b. Bowen Library, October 10, 2006
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BIM Transportation Working Group: Phase 1 Ferry Marshalling Location Options – Report December 2006
1 Executive Summary
The Transportation Working Group (TWG) was appointed by Council to provide, as its primary task, an assessment matrix for three location options for redesigned ferry marshalling. The TWG was directed to assess the Government Road, Loop Road and South Side options against the following criteria: • Ability to meet ferry operating criteria for existing and potential capacities, such as on time performance and maintaining schedule • Commuter needs • Consistency with the principle of encouraging transportation alternatives • Cost • Effect on meeting the Community Energy Plan • Environmental impact • Impact on Crippen Park • Impact (economic and social) on Snug Cove as a village as described in the Snug Cove Village Plan • Opportunity for flexible, phased implementation in response to demand growth • Any other guiding principles
The TWG added impact on future uses of the surplus lands as an “other guiding principle.” The three location options were considered at a conceptual level. There exist numerous design variations of the Government and Loop Road options, including many hybrids. The TWG did not attempt to choose a design to assess, but instead defined “Government Road” to include all designs in which traffic enters and exits the marshalling area via Government/Grafton Roads, and “Loop Road” as all designs having entrances and exits on Miller Road and Cardena Drive. The TWG reviewed many policy and technical documents, correspondence and plans. The relevant excerpts are contained in the appendices to the report. It became apparent early in the process that the South Side option assessed quite poorly against policy considerations. Given its estimated 2004 cost ($10.5-24.1 million) and the unwillingness of key stakeholders such as BC Ferries and the GVRD to consider moving the terminal, the TWG decided that there was no value in continuing to assess that option according to additional criteria. The two remaining location options were not considered to be remarkably different in their ability to meet criteria regarding ferry operation, commuter needs, Community Energy Plan goals or the principle of encouraging transportation alternatives. These objectives can be addressed at either a Government Road or a Loop Road location by establishing specific criteria at the design stage. The six remaining criteria were addressed in the final Assessment Matrix. The TWG has noted assumptions required to support the assessment and shortcomings of the data, as well as the role of interpretation of policy statements and data in making evaluative statements. It is in part for this reason that the TWG has declined to make a formal recommendation of a location option, preferring to allow the Assessment Matrix to speak for itself, as described in the Conclusion.
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BIM Transportation Working Group: Phase 1 Ferry Marshalling Location Options – Report December 2006
2 Project Outline
Background The “resolution of the ferry marshalling and related issues” was identified by Council as one of the three components of its Snug Cove Action Plan (June 2006) for “Reshaping Snug Cove,” which resulted from the 2006 Strategic Plan objective to “implement the Snug Cove Plan.” Within the framework for the Action Plan, Council recognized that “the resolution of the ferry marshalling issue is the key determinant in reshaping Snug Cove,” and formed the Transportation Working Group (TWG) to undertake two projects to advance the process of resolution – referred to as Phase 1 and Phase 2. Phase 1 was to address the issue of ferry marshalling location options, while Phase 2 was to cover related issues such as the preferred size of a new vessel, improvements to transit service on Bowen Island to the ferry terminal and to and from the mainland, and transportation demand management initiatives. This report presents the outcome of the completion of Phase 1.
TWG Terms of Reference: Phase 1 The Terms of Reference provided the following very specific mandate for Phase 1: to provide information to Council on the three ferry marshalling options, information that can then be used to make a decision on which ferry option to pursue.
The TWG began its work in August following appointment of members; Council’s framework provided three months for the project. The specific deliverables defined in the Terms of Reference for Phase 1 are listed below: • Identify and list the objectives and principles of Bowen Island’s governing documents (OCP, Islands Trust Act and Policy Statement, and GVRD Master Plan for Crippen Park and the LRSP) and Council’s prior commitments to reduce greenhouse gas emissions, as they relate to transportation and the Snug Cove areas that include the land for ferry marshalling options; • Identify, list and summarize key elements of existing studies and other literature that pertain to transportation planning on Bowen Island within the principles of the governing documents; • Prepare an assessment matrix, using existing studies and literature, for each of the three ferry marshalling location options according to the following types of criteria, not necessarily in order of priority:
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• Ability to meet ferry operating criteria for existing and potential capacities, such as on time performance and maintaining schedule • Commuter needs • Consistency with the principle of encouraging transportation alternatives • Cost • Effect on meeting the Community Energy Plan • Environmental impact • Impact on Crippen Park • Impact (economic and social) on Snug Cove as a village as described in the Snug Cove Village Plan • Opportunity for flexible, phased implementation in response to demand growth • Any other guiding principles
The TWG has been requested to present its report to Council and the other working groups. Once the final report has been received, it is anticipated that Council will conduct community consultation and make a decision as to which ferry marshalling location option will be pursued.
Method The work of Phase 1 consisted of gathering policy and background documents relating to ferry marshalling and transportation, and organizing and summarizing relevant portions within matrix formats based on the criteria defined in the TWG framework created by Council. Many older documents were gathered and electronically scanned, creating a reference collection for transportation and development issues; they are located at the municipal website and the Bowen library. The TWG divided itself into two teams, one to review the core policy documents such as the Snug Cove Village Plan Bylaw, adopted in 2005, and the other to review the core transportation documents, such as the McElhanney Snug Cove Traffic Management Plan (2003). The relevant policies and marshalling references were first extracted and organized in a matrix (Stage One), based on the criteria specified in the TWG’s Terms of Reference. In Stage Two, the South Side location was assessed comparatively against the other two location options in a Preliminary Assessment Matrix. The creation of the final matrix was a multi-step process, beginning with an examination of the criteria themselves. Finally, a two-part Assessment Matrix was prepared for the comparative assessment of the two remaining location options – Government and Loop road options. The TWG decided not to make use of the services of a transportation consultant during Phase 1. The work of Phase 1 was seen as a task of consolidating and organizing existing information that could be adequately completed with the expertise on hand, including the guidance of the municipality’s Planning Consultant. Instead, the budget was reserved for Phase 2 where there is greater need for the expertise of a transportation specialist.
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3 Ferry Marshalling Location Options
Location Options The TWG was directed to consider three ferry marshalling location options: • Government Road • Loop road (through Crippen Park) • South side (of Snug Cove) Numerous designs and sketches have been proposed over the years. A review of these variations revealed that that they differ in the degree of detail and technical accuracy, and also that it is not always obvious how to classify a particular design. The TWG sought clarification from its Council liaison members regarding how to proceed. The TWG was directed to review the ferry marshalling location options at a conceptual level, and not to consider specific proposals. These definitions are conceptually represented in Figure A.
Terminology The name ‘Government Road’ in this report follows common usage and refers to the stretch of road between the ferry terminal and the Miller/Dorman intersection. The legal name of this road is ‘Bowen Island Trunk Road.’ The name ‘Grafton Road’ is used to refer to the continuation of Government Road west of the Miller/Dorman intersection.
Definition of Location Options An important early step in the TWG’s process was the definition of these three ferry marshalling location options at a conceptual level. The South Side option was simple to define, but for the location options associated with the present location of the terminal, this proved to be not as straightforward as it might seem due to the various hybrid versions on record. The definitions adopted by the TWG follow (and are illustrated in Figure A):
South Side: Ferry marshalling in a yard associated with a new terminal on the south shore of Snug Cove, and a new road for ferry traffic traversing Crippen Park south and exiting on Dorman Road. For an example, see Figure F.
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Government Road Ferry marshalling variations associated with the existing terminal location in which loading traffic enters and exits the marshalling area from Government Road, and in which unloading traffic enters and exits the marshalling area from Government Road. This definition applies to ferry marshalling located:
• On Government and Grafton Roads within existing rights-of-way. • Within a multi-lane expansion of Government Road into Crippen Park on the north side; • Within Crippen Park close to Government road but separated from Government Road by a median or by parkland or by commercial/residential properties; • Within an expanded Grafton Road with loading and unloading along Government Road;
The following plans are examples of the Government Road option:
• McElhanney/BC Ferries Concept G (Figure B) • Opus Hamilton/Ekistics Concept (Figure C) Hybrids of Government Road options which include any point of access or egress on roads other than Government Road are classified as Loop Roads.
Loop Road (through Crippen Park) Ferry marshalling variations associated with the existing terminal in which loading traffic enters the marshalling area from Miller Road and exits on Cardena Drive for loading, and in which unloading traffic leaves the terminal area via Cardena Drive through Crippen Park and exits onto Miller Road. This definition applies to ferry marshalling located:
• Along a single lane on a long road through Crippen Park; • In a multi-lane holding area within Crippen Park. Hybrids of Government Road options which include any point of access or egress on Miller or Cardena are classified as Loop Roads.
The following plans are examples of the Loop Road option:
• McElhanney/BC Ferries Concept F2 (Figure D) • BIM Ferry Advisory Committee Hybrid Loop Concept July 2005 (Figure E)
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4 Document Review
Overview Under the heading “Sustainable Framework” in the Terms of Reference, Council identified the governing documents that guide transportation decisions: - Bowen island Official Community Plan (OCP) - Islands Trust Policy Statement - GVRD Livable Region Strategic Plan (LRSP) and Sustainable Region Initiative (SRI)
References were also included to the Municipality of Burnaby’s report on the impact of peak oil on planning for energy use, to the Community Energy Plan prepared for Bowen, and to recent research on global warming. It was noted that there may be “significant risks in committing to a built infrastructure that relies on the high consumption of fossil fuels and the attendant emissions.” The TWG was directed to consider the resources that can be brought to bear on transportation strategy decisions, including past consultants’ studies and reports (including the most recent study by Opus Hamilton Consultants Ltd.), and research and reports produced by the Ferry Advisory Committee and Sustainable Community Advisory Committee. During Phase 1, the TWG gathered numerous documents relating to transportation from various sources. The older documents were scanned and are available on the municipality’s website, and in printed form in binders at the Library and at the municipal office. For Phase 1, TWG separated these documents into core documents that would be the primary object of study, as identified in the Terms of Reference, and supplementary documents which were consulted only in a limited way due to time constraints. The list of documents can be found in Appendix 1.
A. Core Documents The TWG focused on two categories of core documents: • Policy: documents affecting local planning and development, especially as regards transportation; these include Bowen Island Municipality (BIM), Islands Trust and GVRD policies. • Transportation: documents dealing with transportation issues on Bowen Island; these include technical studies and presentations by consultants and by BC Ferries.
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POLICY DOCUMENTS The policy documents considered by the TWG are listed below, with comments. 1. Bowen Island Municipality Mission Statement, 2002 (CP1) The five components of the BIM Mission Statement are general in nature and apply to the governance of the whole island. The values articulated in the Mission Statement were kept central throughout the TWG’s review process. Official Community Plan, Bylaw 139, 2002 (CP2) The BIM Official Community Plan (OCP) is a comprehensive set of policies to guide planning on Bowen Island. The fundamental policies are general in nature, as in the case of the Mission Statement, and apply to the governance and planning of the whole island. These policies and the values underlying them were kept central throughout the TWG’s review process. The transportation policies used in the review process were those contained in the OCP as amended by the Snug Cove Village Plan. Snug Cove Village Plan, Bylaw 137, 2004 (CP3) The general values and policies of the Snug Cove Village Plan (SCVP), the specific transportation policies, and the study of biophysical attributes and environmentally sensitive areas were prominent in the TWG’s review process. 2. Islands Trust Islands Trust Policy Statement (CP4) Bowen Island’s OCP is legally bound to comply with the Islands Trust Policy Statement. The primary focus of the Islands Trust Policy Statement is environmental protection, with some policies directed at sustaining healthy island communities. These policies are largely reiterated in Bowen Island’s OCP. 3. Greater Vancouver Regional District (GVRD) Crippen Park Concept Plan, 1988, and related documents (CP5) The Crippen Park Concept Plan, with later related documents, describes the objectives and policies of the Greater Vancouver Regional District (GVRD) with respect to the development and operation of Crippen Park. The importance of co-operation and compatibility with community goals is frequently referred to. With regard to Snug Cove development in relation to impact on the park, both in general and regarding ferry marshalling in particular, GVRD has made specific statements subsequent to the Crippen Park Concept Plan and the significant ones have been included in the TWG review. The Surplus Lands Study of 1998 was not included with core documents. Livable Region Strategic Plan (LRSP) (CP6) The policies, objectives and values described in the Livable Region Strategic Plan apply to the governance of the entire Greater Vancouver Regional District. The transportation policies are in general harmony with the broad policies of the SCVP. They have been kept in view during the TWG review process; some of them will be relevant in Phase 2.
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4. Bowen Island Municipality/Pembina Institute/Community Energy Association Community Energy Plan (CP7) During 2002-2004, with assistance from external funding, BIM worked with the Pembina Institute and the Community Energy Association to create a baseline of energy consumption, emissions and expenditures; policy options and planning scenarios; and targets. Included for reference in this category is the City of Burnaby’s recent report on the municipal context for the “Global Peak in Oil Production.” This material was reviewed in Phase 1 to provide a general energy framework for the review, even though it would be difficult to measure the differences in energy impacts among the three ferry marshalling locations. These reports will have greater relevance in Phase 2.
TRANSPORTATION DOCUMENTS The transportation documents considered by the TWG are listed below, with comments. 1. BC Ferries Snug Cove Terminal Master Plan (Draft), 2004, and related documents (CT1) The Terminal Master Plan (Draft) describes “Functional Design Criteria” for the Snug Cove Terminal which any ferry marshalling location must be able to meet. It will remain in draft form until a municipal decision is made about ferry marshalling. Other documents also provide more specific information relating to BC Ferries requirements and its position on the south side as a new terminal location. 2. Reid Crowther & Partners Bowen Island Road Strategy Planning Study, 1999 (CT2) This study by Reid Crowther (RC) was sponsored jointly by Islands Trust, Ministry of Transportation and Highways, Greater Vancouver Regional District and BC Ferry Corporation. The objectives included a review and summary of existing relevant information, interviews with stakeholders, assessment of identified issues, and strategic-level recommendations on all aspects of transportation on Bowen. It was undertaken concurrently with other studies: the GVRD Surplus Lands Study, the Port Divestiture Study, the Draft Land Use Bylaw and the Transit Study. The RC study included recommendations for Transportation Demand Management, for multi-modal transportation facilities (pedestrian, bicycle, equestrian), and for vehicular traffic and parking in the Cove. A specific ferry marshalling plan was not included, but the Snug Cove Concept Plan proposed in the GVRD Surplus Lands Study was put forward as the basis for Snug Cove traffic planning. 3. McElhanney Consulting Services Ltd Snug Cove Traffic Management Plan, 2003 (CT3) This study by McElhanney was sponsored jointly by the BC Ferry Corporation and BIM. The primary objective was to address the issues and concerns related to vehicular and pedestrian movement on Government Road and the insufficiency of ferry marshalling spaces. Five new ferry marshalling concepts (Concepts A, B, C, D, E) were prepared, all based on marshalling on Government Road. Advantages and disadvantages of each were described and cost estimates provided.
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Snug Cove Traffic Management Plan: Addendum, 2003 (T3) Following completion of the original study, BC Ferries commissioned three more concepts (Concepts F1, F2, G) for ferry marshalling, and presented them to BIM. Concept F1 was a Government Road variation. The other two concepts were variations on a Loop road with marshalling in the park. (Concepts F2 and G are included here as Figures D & B, respectively.) BIM Ferry Advisory Committee – Hybrid Loop Road (CT3) Following review of the McElhanney Loop road concepts, the BIM Ferry Advisory Committee met in May 2005 with Public Works Superintendent Brad Hawthorn and BC Ferries Engineer David Carroll to review the various ferry marshalling concepts. Agreement was reached to prepare a loop road concept that was closer to Government Road than the McElhanney Concept F2 concept. (This is included here as Figure E.) 4. Opus Hamiltion Consultants Ltd./Ekistics Bowen Island Transportation Plan, 2006 (CT4) The Opus Hamilton (OH) transportation study was commissioned by CRC Joint Venture in the context of the potential impact of the development of the Cape Roger Curtis lands on transportation. This study was more comprehensive than previous studies, incorporating both island-wide transportation issues and ferry marshalling within its scope. Given the fact that OH reviewed past reports and documents, this study can be considered to have the most complete and up-to-date information regarding transportation realities on Bowen Island. The report included four concepts for ferry marshalling in the Cove. All were Government Road variations with varying degrees of intrusion into Crippen Park. One of these was developed further jointly with the planning firm of Ekistics. This fifth concept introduced the idea of a commercial/residential development separating ferry marshalling traffic from the village while retaining Government Road as the prime access (Figure C). 5. Municipal Insurance Association Ferry Marshalling: Overview and Discussion Report, 2004 (CT5) The purpose of this report was to suggest ways to reduce traffic congestion during peak periods and prevent potential accidents involving vehicles and pedestrians. It provided photographs of hazardous conditions and recommended a combination of additional signage and road markings, bylaw review and enforcement, and traffic controllers. The focus of the report was municipal liability; it did not discuss new ferry marshalling scenarios except to note that municipal growth will further complicate the marshalling area and that long-term capital improvements will be necessary. 6. Urban Systems Ferry Marshalling Lane Extension, 2004 (CT6) In 2004, the municipality engaged Urban Systems to provide design alternatives with costs for ways to increase marshalling capacity on Grafton Road. Their report and the subsequent municipal report describing the version that was implemented, were included primarily for the possible relevance of the criteria used in the evaluations.
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7. ND Lea Consultants Cowan Point Lands Comprehensive Development Plan – Transportation Review, 1999 (CT7) This study was prepared for Islands Trust with respect to the potential transportation impacts of the development planned for the Cowan Point lands. It addressed road capacity and parking issues, considered the possibility of a Seymour Bay passenger ferry, and focused on Transportation Demand Management measures as a means of meeting ferry travel needs without adding to ferry capacity. It did not consider specific ferry marshalling location options, and may be more relevant in Phase 2.
B. Supplementary Documents The topics of ferry marshalling and Snug Cove planning have generated a great deal of written study and comment, both formal and informal, professional and community-based. The TWG has gathered some of this material and classified it as supplementary. It has not been possible for the TWG to review all this material; however, some of it has been converted to electronic form and posted on the municipal website, and can be accessed by those in the community who are interested in a historical perspective on these topics. These supplementary documents are of three types: • Transportation-related (coded ST): These include reports of the BIM Ferry Advisory Committee and documents of Island Trust, BC Ferries, and the Advisory Planning Commission Task Force of 1988. • Ferry marshalling options and drawings (coded FM): There have been numerous proposals, sketches and more formal drawings prepared over the years showing a variety of ferry marshalling design options, often with parking solutions. These have never been collected or organized in a systemic way, and have not been electronically scanned. The focus of the TWG has been on the few drawings prepared by consultants based on technical data. However, all these efforts form an important part of the Bowen Island’s community and planning history, and it is of value to recognize the amount of time, creativity and ingenuity that has gone into seeking a solution to the ferry marshalling challenge. This material currently resides in a variety of binders and files, many in private homes. • Snug Cove-related (coded SC): Snug Cove planning has also been the subject of many studies, reports and community processes. The material gathered by TWG and available electronically includes background to the development of the current Snug Cove Village Plan Bylaw 137, the older Islands Trust Snug Cove Bylaw of 1990, parts of the GVRD Surplus Lands Study of 1998. Included in this group is correspondence received by the TWG from Bowen Heron Watch with an update of heron nesting activity, and a letter from the Bowen Library Board noting the Library’s requirements for patron access and parking; this correspondence is included in Appendix 6.
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5 Matrix Development
Description The preparation of the assessment matrix for the ferry marshalling location options was completed in three stages. The core policy documents were separated from the core transportation documents due to the great differences in contents and approach.
Stage One – Extracts from Core Policy and Transportation Documents In the first stage, the relevant sections from the core policy and transportation documents were extracted and organized in a matrix according to the criteria specified in the terms of reference. There is one matrix for the policy extracts and one for the transportation extracts. The Policy Extracts Matrix is included as Appendix 2a, along with the policy statements as they were excerpted from the documents (see Appendix 2b). [The complete version of the policy extracts matrix can be viewed as the electronic worksheet, posted on the municipal website. In this electronic version of the matrix, the references to the documents are noted in the cells of the Excel worksheet, and the text of the policy extract has been entered as a comment.] The Transportation Extracts Matrix is included as Appendix 3. [It can also be viewed on the website as an electronic Excel worksheet.] The purpose of this step of extracting the relevant policies and transportation data was to consolidate all the relevant policy statements in one place. The benefit of this work is that Council and community members can readily access the reference material relating to ferry marshalling and transportation. It is recommended that users of these matrices also refer to the source documents at the municipal website for the context of the policies, as the extracts in the matrix may not always communicate all the values underlying the policy statements. The matrices and related material in Appendices 2 and 3 constitute the first two deliverables requested by Council: • Identify and list the objectives and principles of Bowen Island’s governing documents (OCP, Islands Trust Act and Policy Statement, and GVRD Master Plan for Crippen Park and the LRSP) and Council’s prior commitments to reduce greenhouse gas emissions, as they relate to transportation and the Snug Cove areas that include the land for ferry marshalling options; • Identify, list [and summarize†] key elements of existing studies and other literature that pertain to transportation planning on Bowen Island within the principles of the governing documents. †The extracts from the core transportation documents were not summarized for two reasons. First, the transportation studies are iterative in nature, with the most recent incorporating and duplicating much of what was said on the subject in prior reports. Second, some of the data in older reports is now obsolete. Therefore, retaining the extracts in their original form seemed to be of greater benefit than trying to summarize data that had been compiled at different times and for different purposes.
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The step of summarizing was, however, taken in the preparation of the final assessment matrix, when it was useful and necessary to summarize statements from both policy and transportation documents in order to compare the location options.
Stage Two – Preliminary Assessment Matrix: South Side During Stage One, it became clear that there was a significant imbalance in the nature and depth of information relating to the South Side option, compared to the Government Road and Loop Road options. For the Government and Loop options, there were drawings prepared by engineers based on technical review of survey data and transportation specifications, as well as other analytical, cost and community data. For the South Side, there were only conceptual drawings (see Figure F for a recent example) and a community-based report. At the same time, there were explicit statements from GVRD, BC Ferries and from BIM Council (as embedded in the Snug Cove Village Plan) regarding their positions on the South Side option. These statements, combined with data regarding cost and general observations relating to some of the key criteria that Council asked the TWG to include in the assessment matrix, made it clear that there were not sufficient grounds for subjecting the South Side option to the same in-depth review as the Government and Loop options, which are more directly comparable. Therefore, the TWG constructed a Preliminary Assessment Matrix for evaluating the three location options at a general level. This Preliminary Assessment Matrix contains: • Extracts from statements made by the three key governing and stakeholder bodies regarding the South Side: • Bowen Island Municipality – Snug Cove Village Plan Bylaw 139, 2004 (BIM) • Greater Vancouver Regional District – Parks – 1988, 1996, 2006 (GVRD) • BC Ferries – 2003 (BCFC) • Cost estimates for the three location options from Opus Hamilton (2006), McElhanney (2003) and BC Ferries (2004). These may not be directly comparable due to the different timeframes and possible differences in costing assumptions, but they do suggest a range of relative magnitude. • Observation that approvals from the federal Department of Fisheries and Oceans (DFO) would not be necessary for the Government Road or Loop Road options as these involve no change in impact on the foreshore. Development of the South Side option would, however, entail substantial alteration of the foreshore and would require DFO approval. The process of application and evaluation would likely take considerable time and expense. Following this preliminary assessment of the three location options based on high-level policy statements, cost indicators and a reasonable assumption regarding DFO processes, the TWG believes that there are no grounds for continuing to give the South Side serious consideration as a ferry marshalling location option. The Preliminary Assessment Matrix (South Side) is shown below.
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Preliminary Assessment Matrix: South Side Government Road Loop Road South Side GVRD No comments The GVRD has agreed to A project of this nature accept a bypass road and would affect the character ferry marshalling north of the of the Park so severely that USCS if the Government we would never consider it road alternative is not to be an appropriate use of selected by the community. parkland…and we have no 1996 (P5c) intention of making any land on Dorman Point Should Government Road available for non-park remain the ferry access and purposes. 1990 (P5d) marshalling corridor, an alternate exit road from the Dorman Point, Snug Cove ferry will be accepted along picnic area and the Snug the alignment of the Cove intertidal area are key proposed bypass…. 1996 elements to Crippen (P5c) Regional Park and need to be protected. 1988 (P5),
2006 (P5b) BIM Regarding potential long Regarding potential long term Relocating the ferry term solutions (for solutions (for terminal to the south side of example… widening of example…incorporating ferry Snug Cove is not Government Road), marshalling within Crippen considered a desirable long undertake detailed Regional Park on the north term option. SCVP 2004 feasibility studies… SCVP side of Government Road), 4.5.2c (P3) 2004 4.5.2b (P3) undertake detailed feasibility studies… SCVP 2004 4.5.2b
(P3) BC Ferries Government Road parking Loop Road option through BC Ferries…indicated that lot option – Concept G – Crippen Park –Concept F2 moving the Snug Cove prepared to BCFS was the option preferred by ferry terminal to the south specifications BCFC 2003 BCFS. BCFC 2003 (T3a) side… was not in their (T3a) future plans. BCFC 2003
(T1b) Cost $2-3 million McE 2003 B, $2.5 million McE 2003 F2 $10.5-24.1 million BCFC
C, D, G (T3a) (T3a) 2004 (T1a) $3-4 million OH 2006 Tbl.4.3 (T4f) DFO No approval required No approval required Approval contingent on resolving significant marine foreshore issues
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Stage Three – Assessment Matrix: Government/Loop Road Options Stage Three involved the creation of a final matrix to assist in the assessment of the Government and Loop road options, using the evaluation criteria specified by Council in the TWG’s Terms of Reference: • Prepare an assessment matrix, using existing studies and literature, for each of the three ferry marshalling options according to the following types of criteria, not necessarily in order of priority: • Ability to meet ferry operating criteria for existing and potential capacities, such as on time performance and maintaining schedule. • Commuter needs. • Consistency with the principle of encouraging transportation alternatives • Cost. • Effect on meeting the Community Energy Plan. • Environmental impact. • Impact on Crippen Park. • Impact (economic and social) on Snug Cove as a village as described in the Snug Cove Village Plan. • Opportunity for flexible, phased implementation in response to demand growth. • Any other guiding principles.
There were numerous challenges associated with this final deliverable, including: • Discerning those criteria where there was a significant difference between the two location options. • Condensing the material in a way that adequately and accurately represented the statements and information in the original documents. • Creating a compact matrix format that would enable Council and the community to engage meaningfully in an evaluation of the location options.
The Criteria The initial step in preparing the final matrix was a study of the criteria in relation to the results of the study of the core policy and transportation documents – both the criteria specified in the Terms of Reference and other criteria, issues and specifications referred to in the documents. a. Criteria specified in the Terms of Reference and excluded from Matrix: After studying the extracts from the core documents, the TWG concluded that, at the conceptual level that the TWG was asked to consider, the Government Road and Loop Road location options were not significantly different according to four out of the nine criteria specified in the Terms of Reference:
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• Ability to meet ferry operating criteria for existing and potential capacities, such as on time performance and maintaining schedule - Relevant core policies can be implemented in either marshalling location: The GVRD Livable Region Strategic Plan (LRSP) requires that Transportation Demand Management be fundamental to transportation planning. Bowen’s OCP/SCVP has two relevant transportation objectives: to provide safe and efficient transportation, and to ensure transportation services do not encourage growth. Ferry operating criteria are noted in a number of transportation documents, They include separation of passenger and vehicle traffic, two-lane loading/unloading for a larger vessel, holding compound to accommodate 99% of sailings in a year, pick-up/drop-off parking requirement at 10% of vessel foot passenger capacity at 15% of total. These specifications would need to be formally listed and clarified with BC Ferries at the time of commissioning a marshalling plan for the location selected. The plan would have to meet these specifications, regardless of which location was chosen. • Commuter needs - Relevant core policies can be implemented in either marshalling location: The LRSP promotes a variety of transit services, networks of complete communities, and increased transportation choices. Bowen OCP Road Objective #5 is to provide ferry marshalling that least affects the character of the village. The SCVP outlines specific locations appropriate for parking. Commuter needs include designated areas for pick-up/drop-off, transit/taxi/school bus parking, sheltered passenger waiting facilities and commuter parking. All of these can be accommodated in any of the locations so long as the specifications are part of the design process. • Consistency with the principle of encouraging transportation alternatives – Relevant core policies can be implemented in either marshalling location: The LRSP encourages transit and carpools while discouraging single-occupancy vehicles. Islands Trust requires OCPs to encourage land use patterns that support bicycle paths and other local and inter-community transportation systems that reduce dependency on private automobiles. OCP Road Objectives call for a road system that reduces conflicts between ferry and local traffic and gives precedence to pedestrians. As with commuter needs, it is arguable that a plan for a new ferry marshalling system in either locations could be consistent with the principle of encouraging transportation alternatives so long as this principle was an integral part of the design process. The condition for a new ferry marshalling system could be that the priority is to enable and support transportation alternatives. • Effect on meeting the Community Energy Plan - The TWG believes that it is arguable that the specific ferry marshalling location options have equivalent potential effects on meeting the Community Energy Plan, as the effect depends on the type and scale of infrastructure created and on associated transportation policies and practices adopted. The Community Energy Plan sets a goal of reducing Bowen’s GHG emissions to a 2000-level by 2010 (the largest source of GHG is off-island automobile travel). Also, the LRSP requires a reduction of private automobile use to address air pollution.
15 BIM Transportation Working Group: Phase 1 Ferry Marshalling Location Options – Report December 2006
Once Council chooses a location option, either Government Road or Loop Road, then the specific elements relating to the above criteria must be incorporated into the specifications for the functional drawings for the ferry marshalling facilities. Because these four criteria are not decisive in differentiating the pros and cons for the location options, they were excluded from the final matrix. b. Other criteria not included in Matrix From a reading of the core documents and a review of the design proposals, it is clear that there are other important criteria which must be part of a full evaluation of a specific ferry marshalling concept developed for either the Government Road or Loop Road location. These include: • Cove short-term/commercial parking • Intersection design improvements • Library access and parking • Cove traffic safety issues • Passenger boarding and disembarking pathways • Accommodation of large transport vehicles These have not been added to the matrix because these issues are proper to the creation of specifications for the final design of a ferry marshalling area once the location is chosen. While this list is not exhaustive, these are clearly central issues for a functional design of ferry marshalling in relation to Cove traffic needs. For example, the insufficiency of short-term parking is part of the larger issue of parking in the Cove, including commuter parking, and can be addressed in a number of ways regardless of which specific marshalling location is selected. c. Criteria selected for the Matrix Based on these considerations, the six criteria below were included in the final assessment matrix. It must be noted that the policy documents are the more significant source of references for comparing the Government Road and Loop Road location options. • Cost The policy statements do not enable a cost comparison of the two location options. The only transportation report to provide costs for both location options on the same basis (McElhanney) suggests that they are equivalent. However, the cost criterion has been included in the final Assessment Matrix because it will inevitably play a part in the discussions. In the final design, many factors could come into play to increase or decrease any preliminary estimate. • Environmental impact The policy documents do not compare the two location options. Some of the policy statements support clear comparative statements, while others are more ambiguous. The transportation reports make one comment comparing environmental impacts for the two locations (see matrix). The few statements in the transportation reports regarding environmental impact are general or global in nature. The McElhanney report draws attention to the trade-off between widening Government Road to achieve two lanes for
16 BIM Transportation Working Group: Phase 1 Ferry Marshalling Location Options – Report December 2006
faster unloading, and reducing the westbound lanes to one lane in order to minimize impact on park lands with a consequential increase unloading time. The Opus Hamilton report suggests adopting policy “support[ing] energy conservation and environmentally- friendly measures in water transport.” • Impact on Crippen Park The policy documents emphasize the relationship between the village commercial area and Crippen Park, with limited reference to ferry marshalling and traffic. The transportation reports have limited comment on the impact of ferry marshalling changes on Crippen Park, except as noted above under ‘environmental impact.’ • Impact (economic and social) on Snug Cove as a village as described in the Snug Cove Village Plan The policy documents comment on the desirability of supporting the Village as a commercial centre, as a gateway, and as a pedestrian-friendly area. There are also many generic statements such as the LRSP’s call for building complete communities and a compact ‘metropolitan region’ – which can be related to the intention for Snug Cove to be a thriving social and economic centre supporting the Island community. The transportation reports have no comments on the economic and social impact of ferry marshalling changes on the Village as Bowen’s social and commercial centre. The Reid Crowther report notes that increased road capacity and upgrading will be required in the long-term and recommends that the design support multi-modal transportation and accommodate additional parking needs, but this comment is not specific to ferry marshalling. Only the McElhanney and Opus Hamilton reports introduce the idea of a separation between ferry traffic/marshalling on Government Road and the Village. • Opportunity for flexible, phased implementation in response to demand growth The only relevant comment in the policy documents is in the OCP, as a global prohibition for transportation policies – they “shall not be used to anticipate or generate demand for land use or growth.” The transportation reports have no comment on the comparative potential of the two locations for phased implementation in response to growth. The Reid Crowther report references the comments of the Snug Cove Advisory Group regarding the suitability of the Government Road location for modifications to meet short-term needs. • Impact on surplus lands There is no reference in the core policy or transportation documents to potential impacts of ferry marshalling on surplus lands. As stated earlier, the reason for selecting these criteria as the basis for evaluating the two location options, Government Road and Loop Road, is that it is in relation to these criteria that there are intrinsic significant differences. These criteria relate to important community values that will be a major factor in the final decision. d. New criteria for Matrix The Terms of Reference provided the opportunity for the TWG to add other “guiding principles” to the criteria list as needed based on findings from the various policy and technical documents. The
17 BIM Transportation Working Group: Phase 1 Ferry Marshalling Location Options – Report December 2006
TWG noted one significant criterion missing from the matrix: impact on the surplus lands. Although related to the criterion impact on Crippen Park, and the planning of the surplus lands is at a very early stage, it appears that the Government Road option and the Loop Road option may have different impacts on the surplus lands. Given the importance of any decisions that might affect the planning and disposition of the surplus lands, this criterion has been included in the final assessment matrix, even though the core documents make no comment on this matter.
The Assessment Matrix The TWG did not find sufficient grounds for evaluating each of the location options independently, so the focus is on the relative merits of each. Due to the unavailability of data to enable specific comparisons, or to make quantitative comparisons, the comparison must be qualitative. The final two-part Assessment Matrix is intended to enable a comparison between the two location options according to the six criteria that are considered decisive, and is offered as a tool to aid in the decision-making process. The two parts should be considered together as one whole and also within the context of the report. The ordering of the criteria in the Assessment Matrix is the same as in the TWG’s Terms of Reference and no hierarchy is implied. The final ranking of the criteria in terms of importance will be up to Council review and community consultation to determine. As noted previously, the policy documents are the more significant source of references for comparing the Government Road and Loop Road location options. There are relatively few references in the Assessment Matrix to the transportation studies, due largely to the fact that their terms of reference did not generally focus on ferry marshalling, or include a requirement to draw comparisons between different location options.
Part A: Policy-based Assessment Matrix Part A is the Policy-based Assessment Matrix that condenses the policy extracts into a few statements. It also gathers the few relevant transportation study extracts. Each of the location options is then assessed comparatively according to its consistency with the policy summary statements or their supportability by transportation studies.
Part B: Impact Assessment Matrix Part B is the Impact Assessment Matrix, which is derived from the Policy-based Assessment Matrix. Each location option is assessed comparatively according to its likelihood to have a lesser or greater positive or negative impact or effect in relation to the criteria. This Matrix is intended to guide the final step of the decision-making process – the choice of a Government Road or a Loop Road location option based on its potential to support desirable change while minimizing negative impacts. In Part B, the TWG offers an example of how the final evaluative statements about the two locations might be framed.
Interpretation and Evaluation The assessment process involved in Parts A and B required interpretation of policies. Also, because the comparison is based on a generalized definition of the location options, it was often not clear in Part A which location has the greater degree of consistency with policy or is more
18 BIM Transportation Working Group: Phase 1 Ferry Marshalling Location Options – Report December 2006
supportable by transportation studies. In Part B, the shift to considerations of impact takes one beyond interpretation to a judgement of the effect of actions to be taken in implementing interpreted policies, and introduces more subjectivity than in Part A. For these reasons, the intention of the completed Assessment Matrix included here is not to provide a definitive evaluation, but rather to offer a decision-making framework to by used by Council in its community consultation and in its own decision process. In preparing this Matrix, many of the entries were debated at length within the TWG. In arriving at the evaluative comments, TWG members were informed by a deep appreciation of the values and intentions embedded in the policies that underlie the framework for managing change and development on Bowen Island. The intention is to provide a tool that supports continued informed discussion and dialogue during the community consultation.
19 BIM Transportation Working Group: Phase 1 Ferry Marshalling Location Options – Report December 2006
Assessment Matrix: Part A – Policy-based Assessment Matrix Criteria Government Road Loop Road Cost
Policies: LRSP: encourage alternatives to automobiles to minimize Equally consistent with policy Equally consistent with policy costs OCP/SCVP: requires BIM to minimize public cost of road Equally consistent with policy Less consistent with policy construction and maintenance. Mission: maintain accountable, effective approach to Equally consistent with policy Equally consistent with policy governance.
Transportation Data: McElhanney: $2-3 million McElhanney: $2.4 million 2003 estimate (unreliable indicator of present cost) 2006 estimate Opus Hamiilton: $3-4 million Unavailable
Environmental impact
Policies:
LRSP - requires reduction of automobile use to reduce air Equally consistent with policy Equally consistent with policy pollution; if designed without increased if designed without increased capacity capacity
- mandates creation of transportation system to protect More consistent with policy Less consistent with policy green zone.
Islands Trust requires land-use patterns that support Equally consistent with policy Equally consistent with policy bicycle paths and other local and inter-community transportation systems that reduce private automobile use.
OCP/SCVP requires: - transportation systems/service that minimize More consistent with policy Less consistent with policy environmental impact; - new roads not to fragment environmentally sensitive More consistent with policy Less consistent with policy areas; Less consistent with policy - protecting and enhancing habitats; More consistent with policy - 50m setbacks from heron nesting trees; Equally consistent with policy Equally consistent with policy - sustainable solutions that protect unique features (incl. Equally consistent with policy Equally consistent with policy Davies Cr., cove foredunes); - maintaining forest backdrop to village; Equally consistent with policy Equally consistent with policy - protecting Crippen Park habitat and ecological values. More consistent with policy Less consistent with policy
CEP suggests locating housing, employment and services More consistent with policy Less consistent with policy closer together to reduce travel and GHG emissions, and increasing walking and cycling
Transportation Data: McEllhaney: Notes herons nest sites…and likelihood that More supportable by reports No comment in reports minor widening of Govt Rd many be more palatable to GVRD.
Please refer to text on pages 16-21 for background and context regarding the interpretation and application of this matrix.
19a
Assessment Matrix Part A – Policy-based BIM Transportation Working Group: Phase 1 Ferry Marshalling Location Options – Report December 2006
Assessment Matrix: Part A – Policy-based Assessment Matrix (cont’d) Criteria Government Road Loop Road Impact on Crippen Park Policies: LRSP calls for protection of the green zone. More consistent with policy Less consistent with policy
OCP/SCVP: - encourages development of public pathways system to More or equally consistent Less or equally consistent link Village to Park and areas surrounding the Park with with policy with policy one another; - requires new roads not to fragment wildlife migration More consistent with policy Less consistent with policy corridors; - recognizes value of Park to livability of Village, and of More consistent with policy Less consistent with policy the trails in encouraging walking to adjacent neighbourhoods;; - promotes a positive visual and aesthetic interface Equally consistent with policy Equally consistent with policy between Park and Village.
Crippen Park Plan guidelines: - good fit between Park and SC commercial area is Equally consistent with policy Equally consistent with policy essential; - strong pedestrian orientation to be emphasized, with More consistent with policy Less consistent with policy many activity areas within walking distance of ferry. - Buffer zones can be used to separate non-park Equally consistent with policy Equally consistent with policy residential and other neighbouring land uses
Transportation Data: McEllhaney: Notes herons nest sites…and likelihood that Supportable by reports No comment in reports minor widening of Govt Rd many be more palatable to
GVRD.
Please refer to text on pages 16-21 for background and context regarding the interpretation and application of this matrix.
19b
Assessment Matrix Part A – Policy-based BIM Transportation Working Group: Phase 1 Ferry Marshalling Location Options – Report December 2006
Assessment Matrix: Part A – Policy-based Assessment Matrix (cont’d) Criteria Government Road Loop Road Impact on Snug Cove Village Policies: OCP/SCVP: - promotes pedestrian-centred village that provides for the Equally consistent with policy Equally consistent with policy necessary growth that contributes to a pleasant village
centre. - a free flow of vehicles from the ferry to the Snug Cove Equally consistent with policy Equally consistent with policy commercial area is desired;
- ferry marshalling should minimize effects on the character and functioning of the Village while More consistent with policy Less consistent with policy maintaining the amenities of the park and residential areas. - a ‘village within a park’ – the Cove should be the More consistent with policy Less consistent with policy economic, social, and cultural centre of the island. - Lower Cove should be enhanced as the ‘gateway’ to the More consistent with policy Less consistent with policy community.
Transportation Data: McElhanney: - improvements to Government Road that avoid widening Supportable by reports No comment in reports are preferable, but a natural median would offset adverse aesthetics of widened roadway.
- concerns about the number of utility poles on the South side of Government Road in relation to improving Equally applicable Equally applicable walkways (Loop Road scenario not considered in report, but findings can be extended to a Loop Road scenario).
Opus Hamilton: notes the objective of separating ferry Supportable by reports No comment in reports marshalling from the Village to retain Village environment.
Flexible, phased implementation in response to growth Policies: OCPSCVP: transportation policies shall not be used to Greater opportunity and Lesser opportunity due to anticipate or generate demand for land use or growth. flexibility due to ability to build need to build all-new onto existing infrastructure. infrastructure in the park.
Transportation Data:
Reid Crowther: modifications to ferry marshalling should Supportable by reports No comment in reports focus on Government Rd, while designs should keep open the possibility for traffic diversion modifications in the future.
Impact on Surplus Lands Policies: Lesser or no negative impact Greater negative impact on No comments on alternate uses due to alternate uses due to closer greater distance from surplus proximity to surplus lands Transportation Data: lands development. development. No comments Please refer to text on pages 16-21 for background and context regarding the interpretation and application of this matrix.
19c
Assessment Matrix Part A – Policy-based BIM Transportation Working Group: Phase 1 Ferry Marshalling Location Options – Report December 2006
Assessment Matrix – B. Impact Criteria Government Road Loop Road
Cost Potentially equal cost depending on Potentially equal cost depending on design specifications. design specifications. Lesser cost to adapt existing Greater cost to build new infrastructure to new requirements. infrastructure.
Environmental impact Lesser negative impact on habitats due Greater negative impact on habitats to lesser intrusion into park. due to bisection of park. Better protection of green zone by not Lesser protection of green zone due to bisecting park. fragmentation of park. More compact village-based More dispersed village-based development. development
Impact on Crippen Park Lesser negative impact through loss Greater negative impact through /segmentation of parkland due to loss/segmentation of parkland due to concentration of development at park creation of new footprint in centre of
edge. park.
Lesser negative effect on trails network Greater negative impact on trails due to concentration of marshalling at network due to bisection of park and park edge. roadway.
Impact on Snug Cove Village Greater potential to enhance Village as Lesser potential to enhance Village as social/economic centre due to proximity social/economic centre due to to Village, with clustering of marshalling. increased distance from Village and
linear marshalling.
Better promotes a pedestrian-oriented Lesser ability to promote a pedestrian- ‘Village within a Park,’ with separation of oriented ‘Village with a Park’ due to ferry traffic from village. distance from village centre. Better enhances Lower Cove as Abandons Lower Cove as Gateway for Gateway due to use of lower vehicles. Government Rd. by vehicles and pedestrians.
Flexible, phased implementation in response to Greater opportunity and flexibility due to Lesser opportunity due to building all- growth ability to build onto existing new infrastructure in the park. infrastructure.
Impact on Surplus Lands Lesser or no negative impact on Greater negative impact on alternate alternate uses of municipal lands due to uses of municipal lands due to closer greater distance from surplus land proximity to surplus land development. development.
Please refer to text on pages 16-21 for background and context regarding the interpretation and application of this matrix.
19d
Assessment Matrix Part B - Impact BIM Transportation Working Group: Phase 1 Ferry Marshalling Location Options – Report December 2006
6 Ferry Marshalling Location Options - Conclusion
The TWG was not asked to make a recommendation about a ferry marshalling location, but was left free to do so. Having come to the end of Phase 1, the TWG believes that the Assessment Matrix speaks for itself with regard the comparative features of the Government Road and Loop Road options, based on the process engaged in by the TWG. As noted earlier, the step that remains for Council and the community to take, in addition to their own study of the extracts and the Assessment Matrix, is to rank the decisive criteria in terms of importance. In conclusion, the TWG would respectfully like to offer Council an observation and a suggestion.
Observation: Government Road Location Option Without making a recommendation, it can be observed that the criteria isolated for the final matrix comparison point to a Government Road location for ferry marshalling as the location offering better opportunities for minimizing impacts on the environment, on Crippen Park and on the surplus lands, for enhancing the vitality of the village of Snug Cove, and for flexible, phased implementation in response to growth. Having made this observation, it is important to refer back to the range and variety of ferry marshalling designs possible in the Government Road location, as they differ significantly in their relative impacts and benefits. They were described earlier as follows:
1. On Government and Grafton Roads within existing rights-of-way. 2. Within a multi-lane expansion of Government Road into Crippen Park on the north side; 3. Within Crippen Park close to Government Road but separated from Government Road by a median or by parkland or by commercial/ residential properties; 4. Within an expanded Grafton Road with loading and unloading along Government Road; While the comparative comments in the Assessment Matrix are based on a generalized concept of the Government Road location option, the comments could vary significantly if the focus were on one specific variation. For example, variation #1 may assess more favourably than the generalized concept according to cost, environmental impact and impact on Crippen Park, but may show negatively in its impact on Snug Cove Village since it does not provide separation between ferry traffic and the village. These four variations may also assess very differently according to criteria that must be brought into the design stage of ferry marshalling planning. It must be noted that the comparative evaluation of these four Government Road variations is even more tenuously supportable by reference to policy and transportation documents than the comparative evaluation of the three different location options. At the same time, the TWG believes that it will be important to elicit public comments on these variations, as well as on the
20 BIM Transportation Working Group: Phase 1 Ferry Marshalling Location Options – Report December 2006
three location options. It must also be noted that the development of specifications for the actual design will be a critical step, as it must bring in many additional criteria (see pages 15 and 16).
Suggestion: Once Council makes its decision regarding the location of new ferry marshalling facilities, the TWG suggests that the first stage of planning the new marshalling facilities be incorporated into the planning of the surplus lands, including civic facilities, with the proviso that this step does not introduce unproductive delays into either process. Both initiatives can develop in tandem within a framework of shaping a sustainable community and village, and looking to reduce our island's ecological footprint in transportation practices, energy use and waste. The result will be an actionable design that can become a blueprint for implementation. By grounding the combined initiatives of surplus lands planning and ferry marshalling planning within an explicit commitment to innovative and sustainable directions, access to new sources of external funding may be increased. One example is the recently announced federal funding for village squares - our village does not have a heart or centre, and co-ordinated planning for the surplus lands and for ferry marshalling could make this possible. Council’s Snug Cove Action Plan is an opportunity for bringing to life the vision for the village that has been talked about for so many years that will not come again for Bowen Island. This can be done without compromising the environmental and social values that are so important in the community, while also potentially increasing the island's economic self-sufficiency and thereby reducing ferry trips by residents. To embark on a plan to design new ferry marshalling facilities does not necessarily have to mean a step in the direction of favouring the automobile. On the contrary, even without a commitment to a larger ferry in the near future, it can be a step in the direction of re-vitalizing the lower village as the social and commercial hub of the community, and increasing the appeal and functionality of other modes of travel to and from the mainland and within the Cove. The documents point to the need to take this step for the benefit of the community – merchants, residents, commuters – from the perspectives of safety, aesthetics and functionality.
21 BIM Transportation Working Group: Phase 1 Ferry Marshalling Location Options – Report December 2006
22 BIM Transportation Working Group: Phase 1 Ferry Marshalling Location Options – Report December 2006
Figures
Schematic of Location Options A. Ferry Marshalling Location Options: Government Road, Loop Road, South Shore
Examples of Government Road Location B. McElhanney/BC Ferries Concept G C. Opus Hamilton/Ekistics Concept
Examples of Loop Road Location D. McElhanney/BC Ferries Concept F2 E. BIM Ferry Advisory Committee Hybrid Loop Concept July 2005
Example of South Side Location F. South Side Terminal/Ferry Marshalling Drawing
23
80 Passenger 100 Passenger Ferry Drop-off Vehicle Equivalent Vehicle Equivalent 40 Parking Stalls & Pickup Retaining Wall
Mt Gardner Rd
Cardena Dr
Grafton Rd
Cardena Dr
Total Marshaling Area for 200 Passenger Vehicle Equivalent
Venture Rd Miller Rd
Senior Rd
Grafton Rd Government Road
Main Street Zone
Government Road ilrRd Miller
Proposed Lane Existing Shops Parallel Parking One-Way Parallel Parking New Commercial Retail Opportunities Two Marshaling Planted Two By-Pass Krippen Park Pocket Travel Lane Pocket Gardens/Patios - Outdoor Public Space Lanes - Plaza Boulevard Lanes Trailhead
Existing Right-of-Way Proposed New Right-of-Way 20.12m Typical 17.5m Typical Snug Cove Government Road Cross Section Davies Rd BOWEN ISLAND TRANSPORTATION PLAN
June 20, 2006 Bowen Island, BC
20 Passenger Terminal Building - 5m x 12m Vehicle Equivalent Bus Only Taxi Figure C Snug Cove Marshaling Concept BOWEN ISLAND TRANSPORTATION PLAN
June 20, 2006 Bowen Island, BC
Figure E
Appendices
BIM Transportation Working Group: Phase 1 Ferry Marshalling Location Options – Report December 2006
Appendix 1 - Documents List: Core and Supplementary
Policy Documents (P, or CP on municipal website) (Core documents relating to community governance policies and values)
Tab Doc. # Description 1 P1 BIM Mission Statement (2002) 2 P2 BIM Official Community Plan (OCP), Bylaw 139 (2002) 3 P3 BIM Snug Cove Village Plan (SCVP), Bylaw 137 (2004) 4 P4 Islands Trust Policy Statement (2003) 4 P4a Islands Trust Resolution re OCP Bylaw 137/139 Compliance with IT Policy Statement 5 P5 GVRD Concept Plan for Crippen Park Draft (1988) 5 P5a GVRD Ferry Parking and Surplus Land in Snug Cove (Schade) (1984) 5 P5b GVRD Position re. Dorman Pt. as south side ferry marshalling option, July, 2006 5 P5c GVRD Surplus Lands and Ferry issues, Memo Sept 1996 5 P5d GVRD Position re. south side ferry marshalling option, Sept 1990 5 P5e GVRD Response re. south side ferry marshalling option, Dec 2004 6 P6 GVRD Livable Region Strategic Plan (1999) 7 P7 BIM Community Energy Planning (Pembina Institute): Baseline (2002) 7 P7a BIM Community Energy Planning (Pembina Institute): Options (2003) 7 P7b BIM Council Resolution re. energy measures and emissions targets 040209 7 P7c City of Burnaby, Global Peak in Oil Production: The Municipal Context, Jan 06 7 P7d BIM Community Energy Planning (Community Energy Association): Targets (2004)
Transportation Documents (T, or CT on municipal website) (Core studies and reports relating to transportation planning and ferry marshalling)
Tab Doc. # Description 1 T1 BCFC Snug Cove Terminal Master Plan Draft (2004) 1 T1a BCFC Cost Estimate to move terminal to south side (2004) 1 T1b BCFC/BIM Snug Cove Planning Issues (south side) meeting, Sept 2003 1 T1c BCFC Delegation to BIM re. larger ferry & infrastructure, Dec 2004 1 T1d BCFC Presentation to BIM re Vessel Replacement Issues, May 2005 2 T2 Reid Crowther BI Road Strategy Planning Study (1999) 3 T3 McElhanney Snug Cove Traffic Management Plan (2003) 4 T4 Opus/Hamilton BI Transportation Plan – Council Presentation PPT July 4/06 4 T4a Opus/Hamilton-Ekistics BI Transportation Plan: Snug Cove Vision - Concept (2006) 4 T4b Opus/Hamilton-Ekistics BI Transportation Plan: Snug Cove Vision – Structural (2006) 4 T4c Opus/Hamilton-Ekistics BI Transportation Plan: Snug Cove Vision – Engineering (2006) 4 T4d Opus/Hamilton-Ekistics BI Transportation Plan: Snug Cove Vision – X-Section (2006) 4 T4e Opus/Hamilton Transportation Master Plan, Technical Memo 2/4.0 Ferry Marshalling, Jan/July 2006 4 T4f Opus/Hamilton Transportation Master Plan, October 2006 4 T4g Opus/Hamilton Transportation Master Plan, October 2006 – Undercurrent article Oct 13/06 5 T5 Municipal Insurance Assn. of BC Ferry Marshalling Report to BIM, May 27/04 6 T6 Urban Systems, Ferry Marshalling Lane Extensions (Grafton) Costs, May 6/04 6 T6a BIM Ferry Marshalling Grafton Road Double Lane Costs, July 2004 7 T7 NDLea Cowan Point Transportation Study (1999)
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Appendices BIM Transportation Working Group: Phase 1 Ferry Marshalling Location Options – Report December 2006
Appendix 1 (cont’d)
Supplementary Documents (S, or ST on municipal website) – Transportation Background (Supplementary and background materials relating to transportation and ferry issues)
Tab Doc. # Description 1 S1 BIM FAC Ferry Marshalling Analysis for Council Feb 7/05 1 S1a BIM FAC Presentation to Council Jan 16/06 – PPT 1 S1b BIM FAC Presentation to Council Jan 16/06 – Outline & Apps 1-3, 1 S1c BIM FAC Presentation to Council Jan 16/06 – App 4 Bowen Transportation History 1 S1d BIM FAC Presentation to Council Jan 16/06 – Snug Cove Village Plan extracts re. ferry 1 S1e BIM FAC Presentation to Council Jan 16/06 – Fuel Surcharges: Islands Trust to Kevin Falcon 2 S2 APC Transportation Task Force Survey Report/Analysis, March 1992 3 S3 Islands Trust: FM/Parking/Roads – Background/Resource Information (Quin), Jan 1988 3 S3a IT/GVRD: Snug Cove Ferry Marshaling/Parking – History (Open House), July 1987 4 S4 BCFC Customer Profile/Survey (Nova), January 2000 5 S5 BILLS/SCAC Bowen 2042: Community Meeting Report, Oct 2002
Ferry Marshalling Options (F, or FM on municipal website) (Drawings and descriptions of ferry marshalling options)
Tab Doc. # Description (not compiled)
Snug Cove (C, or SC on municipal website) (Supplementary and background materials relating to Snug Cove planning)
Tab Doc. # Description 1 C1 Snug Cove Village Plan (V5), May 2003 1 C1a Snug Cove Village Plan (V5): Community Review/Workbook, Jan 2004 1 C1b Snug Cove Village Plan (V5): Community Review - Forum/Ad, Jan 16 2004 1 C1c Snug Cove Village Plan (V5): Community Review/Article, Jan 16 2004 1 C1d Snug Cove Village Plan (V5): Community Review/Invitation Flyer, Jan 2004 1 C1e Snug Cove Village Plan (V5): Community Review/Report, April 2004 1 C1f Snug Cove Village Plan (V5): Community Forum Report (Exec Summ), April 2004 1 C1g Snug Cove Village Plan (V5): Poll 1 – Cove (fr. Report) 1 C1h Snug Cove Village Plan (V5): Poll 2 – Ferry Marshalling (fr. Report) 1 C1i Snug Cove Village Plan (V5): Community Presentation (PPT), March 2004 1 C1j Snug Cove Village Plan (V4): BI Conservancy Comment, Nov 2002 2 C2 Snug Cove Village Plan Bylaw 137 Public Information Meeting, Minutes June 16/05 2 C2a Snug Cove Village Plan Bylaw 137 Public Hearing, Council Minutes June 23/05 3 C3 Snug Cove Task Force: Snug Cove Vision, 2001 3 C3a Snug Cove Task Force Report: Council Review Framework Ddr/R. Turner, March 21/01 4 C4 Islands Trust: Snug Cove Village Plan, Bylaw 14/97, 1990 5 C5 GVRD Surplus Lands Study, Urban Systems Proposed Concept, 1998 5 C5a GVRD Surplus Lands Study, Snug Cove views (drawings) 5 C5b GVRD Surplus Lands Study, Urban Systems, Guiding Principles, Nov. 1998 5 C5c GVRD Surplus Lands Study, Undercurrent article, Feb. 5, 1999 5 C5d GVRD Surplus Lands Study, Summary/Drawings (fr. Reid Crowther, 1999) 6 C6 Advisory Planning Commission re. SC Advisory Group Report Recommendations, 1997 7 C7 Bowen Heron Watch (Nature Club/Conservancy) - 2006 Herons Nesting Update 8 C8 Bowen Library – access and parking: Letter from Board Chair October 2006
Appendix 1 Page2
Appendices BIM Transportation Working Group: Phase 1 Ferry Marshalling Location Options – Report December 2006
Appendix 2
Matrix Development (Stage One):
Extracts from Core Policy Documents
2a - Policy Extracts Matrix Appendix 2a Pages 1-12
2b - Policy Extracts Text Appendix 2b Pages 1-21
Appendices TWG Matrix Stage One: Policy Documents Extracts Matrix Appendix 2a
ABCDEFGH
Islands Trust Livable Region Official Mission Community Crippen Park Plan Criteria Policy Snug Cove Plan Strategic Plan Community Plan Statement Energy Plan (1988) Statement 1 2
4.5.1 Ability to meet ferry operating criteria Transportation Transportation 4.1 Transportation for existing and potential capacities, Policies 4.5.2 Choice Policies Services Ojectives such as operating time and Ferry 14 & 15, p.23 1,2,3 and 4 performance Transporation Policies 3 4
4.1 Transportation 3.1 Vision Services Statement 3.2 Transportation Objectives 1,2,3,4 Guiding Principles Choice Policies 4.1.2 Road 4.5.1 and 4.5.2 Commuter needs 16.2, p. 23 and Objective (5) Ferry Polciy Directions, Parking Policy Transportation p. 13 4.1.2.15, Parking Policies 4.5.3 Objective (15) (16) Parking Policies 5 6
3.7 Commercial Land Use Objective (7) 4.1 Transportation 3.2 Guiding Bowen Island Services principles 4.1.2 Municipality Bowen Island Consistency with the principle of Policy Directions Objective (3) 4.1.1 Commercial Mission Community Energy encouraging transportation p. 13 and policy Water Development Statement, Planning Options alternatives 16.3, p. 23 Transportation Policies 4.5 principles 1, 2, 3 Report p. 6, 10 Objective (3) Transportation and 5 4.1.1.5 4.1.2 and Parking Pedestrian Objective (1) Road Objective (6) 7 8
Bowen Island Part V: 4.1.2 Land BIM Mission Sustainable Community Energy Cost Transportation Statement Communities Planning Options Objective (8) principle 4 5.3.7 Report p. 9 9 10
Appendix 2a Page 1 TWG Matrix Stage One: Policy Documents Extracts Matrix Appendix 2a
ABCDEFGH 3.7 Commercial Part V: Policy Directions: Land Use Sustainable Effect on meeting the Community Increase Objective (7) 4.3.1 Environment Council resolution Communities Energy Plan Transportation 5.2 Energy Policies 04-45 5.3.7 Choice, p. 13 Resources Objective (1) 5.2.1 11 12
4.1 Transportation Part V: Services Objective Sustainable (4); Road Policy BIM Mission Community Energy Policy Directions, Environmental Impact Communities 4.1.2.7 5.1 4.3 Environment Statement Plan Options p. 13 5.3.7 Environmental principles 1 and 5 Report, p. 11-12 Resources Objectives (1) (2) 13 14
4.1.2 Land Crippen Park Key Transportation 4.4 Crippen Guidelines a, c, e; Policy Directions, Pedestrian Impact on Crippen Park Regional Park Crippen Park p 13 Objective (1) (4.4.2, 4.4.3) General Guidelines Road Policy b. 4.1.2.7 15 16 2.3 Broad Objectives; 4.1.2 3.2 Guiding Impact (economic and social) on Policy Directions, Land Principles 4.1.2 Snug Cove as a village as described p. 13 Transportation - Commercial in the Snug Cove Village Plan Pedestrian, Road Development 17 Objectives 18
2.2 Principles; 4.1 Opportunity for flexible, phased Transportation implementation in response to Services demand Objectives 19 20
Appendix 2a Page 2 TWG Matrix Stage One: Policy Documents Extracts Matrix Appendix 2a
Cell: B3 Comment: LRSP TRANSPORTATION CHOICE POLICIES, P. 23
14. pursue Transportation Demand Management (TDM) strategies as a fundamental transportation requirement for achieving the goals and objectives of this Strategic Plan.
15. enter into partnerships with GVRD member municipalities, local, provincial and federal governments and private organizations for the establishment of a regional capability to develop, co-ordinate, implement and monitor TDM strategies.
Cell: D3 Comment: OCP 4.1 TRANSPORTATION SERVICES Objectives The objectives respecting transportation services in the Plan area are: 1) to provide safe and efficient transportation that meets the needs of residents and visitors on Bowen Island. 2) to ensure that transportation services do not encourage population growth. 3) to encourage alternative transportation systems (eg taxis, water taxis, bicycles, etc.) to relieve congestion created by private automobile use. 4) to ensure that transportation systems or services are designed to minimize environmental impact.
Cell: E3 Comment: Snug Cove Plan:
4.5.1 Transportation Policies
a) Support the completion of a Traffic Management Plan to identify solutions for improved circulation within the Cove, in particular to provide for a safe separation of pedestrian and vehicular traffic, convenient foot passenger pick up/drop off, and a bus/taxi unloading/loading area near or adjacent to the ferry terminal.
b) Create a more positive pedestrian realm along Government Road through the provision of wide sidewalks, landscaping, special paving treatments, and coordinated street furniture.
c) Provide for centralized, weather protected, and safe bike storage/parking at the Ferry foot passenger building.
d) Provide for greenway linkages between the Cove and adjoining neighbourhoods and recreational amenities.
e) Require the provision of bicycle racks for new developments within the Cove.
f) Create safe and interesting bicycle routes as part of a greenways system.
g) Ensure that transit vehicles can maneuver easily and efficiently within the Cove.
4.5.2 Ferry Transporation Policies
Appendix 2a Page 3 TWG Matrix Stage One: Policy Documents Extracts Matrix Appendix 2a
Cell: B5 Comment: LRSP TRANSPORTATION CHOICE POLICIES p. 23
16.2 to provide a variety of local transit services and networks with the flexibility to serve different demands in support of the complete communities and the compact metropolitan region;
POLICY DIRECTIONS: INCREASE TRANSPORTATION CHOICE p. 13
The regional transportation objectives need time, money and patience to become reality. The Strategic Plan recognizes that the private automobile will continue to be the dominant way of getting around the region for the foreseeable future. At the same time, it relies on public transit and other high occupancy forms of travel to provide the additional transportation capacity needed to respond to population and economic growth.
Cell: D5 Comment: OCP 4.1 TRANSPORTATION SERVICES Objectives The objectives respecting transportation services in the Plan area are: 1) to provide safe and efficient transportation that meets the needs of residents and visitors on Bowen Island. 2) to ensure that transportation services do not encourage population growth. 3) to encourage alternative transportation systems (eg taxis, water taxis, bicycles, etc.) to relieve congestion created by private automobile use. 4) to ensure that transportation systems or services are designed to minimize environmental impact.
4.1.2 Land Transportation Road Objectives 5) to provide ferry marshalling spaces in a manner that least affects the character and functioning of the village centre, while maintaining the amenities of the surrounding park and residential areas.
Parking Policies 4.1.2.15 While commuter parking in Snug Cove is not encouraged if alternative on island transportation can be developed, it is recognized that parking should be provided to help reduce the number of vehicles on the ferry. Commuter Parking should be developed as part of any new ferry marshalling area and in the interim should be provided in the area designated PK (Parking) on the north side of Government Road. This lot will also function as a visitor parking lot on weekends. Commuter parking may also be provided in other designated parking areas when they are not being used for other parking requirements;
Parking Objectives
Cell: E5 Comment: Snug Cove Plan:
3.1 Vision Statement
Planning for complete and sustainable communities requires the integration of Appendix 2a Page 4 TWG Matrix Stage One: Policy Documents Extracts Matrix Appendix 2a
transportation and land use planning, building and site design, environmental, social and economic development considerations in order to be successful.
In the short term, ferry marshalling will continue to occur on Government Road, in a reconfigured manner that is intended to improve pedestrian and vehicular traffic movement within the Cove and provide a more appealing entry to the community.
3.2 Guiding Principles • Strike a balance for the function of Government Road as both a corridor to the ferry and a “main street” to the community • Find better ways of managing ferry marshalling, short and long term commuter parking, foot passenger/pedestrian access, and parking for businesses
4.5.1 Transportation Policies
a) Support the completion of a Traffic Management Plan to identify solutions for improved circulation within the Cove, in particular to provide for a safe separation of pedestrian and vehicular traffic, convenient foot passenger pick up/drop off, and a bus/taxi unloading/loading area near or adjacent to the ferry terminal.
b) Create a more positive pedestrian realm along Government Road through the provision of wide sidewalks, landscaping, special paving treatments, and coordinated street furniture.
Cell: B7 Comment: LRSP POLICY DIRECTIONS p. 13 INCREASE TRANSPORTATION CHOICE ➤ Encouraging certain types of transportation, such as transit and carpools, and discouraging others, such as the single occupant vehicle.
TRANSPORATION CHOICE POLICY p. 23 16.3 to assign priority for increased roadway capacities first to high occupancy vehicles, goods movements, inter-regional movements and then single-occupant automobiles;
Cell: D7 Comment: OCP 3.7 COMMERCIAL LAND USE The objectives respecting commercial land use in the Plan area are: 7) to provide for commercial facilities, including commercial recreational facilities, which minimize the need for visitor motor vehicle use.
4.1 TRANSPORTATION SERVICES Objectives The objectives respecting transportation services in the Plan area are: 3) to encourage alternative transportation systems (eg taxis, water taxis, bicycles, etc.) to relieve congestion created by private automobile use.
4.1.1 Water Transportation Water Transport Objectives The objectives respecting water transportation in the Plan area are: ... 3) to request the B.C. Ferry Corporation to: ...c) to facilitate the use of transportation systems other than the private automobile on or connecting to the ferries.
4.1.1.5 Passenger only ferry service may be considered provided that parking and on island transportation requirements are addressed Appendix 2a Page 5 TWG Matrix Stage One: Policy Documents Extracts Matrix Appendix 2a
prior to the initiation of such a proposal.
4.1.2 Land Transportation
Cell: E7 Comment: Snug Cove Plan
3.2 Guiding Principles • Ensure that sustainable solutions, a balance of social, economic, and environmental values, are used in managing new development • Promote a pedestrian oriented environment
4.1.2 Commercial Development Policies h) Support initiatives that would result in enhancing public transportation to Snug Cove.
4.5 Transportation and Parking ... This Plan also recognizes that there are other modes of transportation that need to be accommodated and promoted in order for the Village to achieve complete and sustainable status, namely pedestrian, cycling, and transit. Cycling and walking are key forms of transportation in a compact and complete community. Residents and visitors of the Village should have access to both road/sidewalk and purpose-built trails to circulate within the village and connect to the adjoining neighbourhoods and recreational amenities.
Cell: F7 Comment: Bowen Island Municipality Mission Statement
In carrying out its mandate, Bowen Island Municipality will work towards conducting operations in a way that:
1 Improves the economic, environmental and social well-being for present and future generations;
2 Encourages and fosters community involvement;
3 Enhances the small, friendly, caring character of the community;
...
5 Preserves and enhances the unique mix of natural ecosystems and green spaces that Bowen Island possesses.
Cell: G7 Comment: Bowen Island Community Energy Planning Options Report: • About 88% of the total GHG emissions on Bowen Island are from transportation, with, on average, 12% of total emissions from on-island transportation, 45% from commuters in private vehicles off-island, and 31% for emissions from ferries over the three years investigated. (page 6)
The following types of sustainable energy options were considered: • Sustainable transportation options which facilitate reduced energy consumption for personal and municipal transportation both on and off the island. This includes options to reduce the energy use in personal motor vehicles and to facilitate the use of motorized and non-motorized alternative transportation forms. The goal of these options is to facilitate reductions in transportation energy use along with expenditures and emissions. (page 10) Appendix 2a Page 6 TWG Matrix Stage One: Policy Documents Extracts Matrix Appendix 2a
Cell: C9 Comment: Part V: Sustainable Communities
5.3.7 Local trust committees and island municipalities shall, in their official community plans and regulatory bylaws, address the development of land use patterns that encourage establishment of bicycle paths and other local and inter-community transportation systems that reduce dependency on private automobile use.
Cell: D9 Comment: OCP 4.1.2 Land Transportation Land Transportation Objectives Road Objectives 8) to minimize the public costs of road development and maintenance.
Cell: F9 Comment: Bowen Island Municipality Mission Statement
In carrying out its mandate, Bowen Island Municipality will work towards conducting operations in a way that: ... 4 Maintains an open, accountable and effective operation
Cell: G9 Comment: Community Energy Plan
The off-island operation of vehicles is the largest source of energy consumption and GHG emissions. It is also a significant contributor to CO, VOC, NOX and SOX emissions, as well as the largest personal cost to island residents. (page9)
Cell: B11 Comment: LRSP POLICY DIRECTIONS, p. 13 INCREASE TRANSPORTATION CHOICE
➤ Encouraging certain types of transportation, such as transit and carpools, and discouraging others, such as the single occupant vehicle.
Cell: C11 Comment: Part V: Sustainable Communities
5.3.7 Local trust committees and island municipalities shall, in their official community plans and regulatory bylaws, address the development of land use patterns that encourage establishment of bicycle paths and other local and inter-community transportation systems that reduce dependency on private automobile use.
Cell: D11 Comment: OCP 3.7 COMMERCIAL LAND USE Appendix 2a Page 7 TWG Matrix Stage One: Policy Documents Extracts Matrix Appendix 2a
The objectives respecting commercial land use in the Plan area are: 7) to provide for commercial facilities, including commercial recreational facilities, which minimize the need for visitor motor vehicle use.
5.2 ENERGY RESOURCES Energy Resource Objectives The objectives with respect to energy resources and public utility land uses in the Plan area are: 1) to support the use and development of clean energy resources which are self sustaining and which have minimal impacts upon the environment as compared to alternatives.
5.2.1 Land uses and services which make efficient use of energy resources and which are unobtrusive to adjacent properties or to the landscape of Bowen Island will be supported subject to other applicable policies of this Plan including but not limited to ... public and collective transportation systems, nonpolluting forms of transportation...
Cell: E11 Comment: Snug Cove Plan
4.3.1 Environment Policies i) Require new development to incorporate sustainable design features and greenbuilding technology pertaining to such building elements as energy and water efficiency and waste management technologies.
Cell: G11 Comment: The Council Resolution 04-45 chose 2000 emissions levels by 2010 as the CEP’s target. In real terms, this means, in CO2 equivalent tones: Year 2000 Projected 2010 On-island transportation: 2,721 4,300 Off-island transportation: 10,327 16,318 Ferry 7,381 7,381 Bus 40 90
The total GHG emissions target is 23,440 co2 eq tonnes. Off island transportation accounts for 44% of this figure, and is the largest single component of our emissions profile.
Cell: B13 Comment: LRSP Policy Directions, p. 13:
As the region’s population continues to grow, our dependence on the private automobile needs to be reduced if we are to have any chance of addressing the issues of air pollution, congestion and the spiraling public costs associated with them. ... ➤Working with municipal, provincial and federal partners, as well as neighbouring regional districts, to create a transportation system that supports protection of the Green Zone, complete communities, and a compact metropolitan region;
Cell: C13 Comment: Part V: Sustainable Communities
5.3.7 Local trust committees and island municipalities shall, in their official community plans and regulatory bylaws, address the development of land use patterns that Appendix 2a Page 8 TWG Matrix Stage One: Policy Documents Extracts Matrix Appendix 2a
encourage establishment of bicycle paths and other local and inter-community transportation systems that reduce dependency on private automobile use.
Cell: D13 Comment: SECTION 4 SERVICES
4.1 TRANSPORTATION SERVICES
Objectives The objectives respecting transportation services in the Plan area are: ... 4) to ensure that transportation systems or services are designed to minimize environmental impact.
4.1.2 Land Transportation Road Policies 4.1.2.7 New roads should not fragment areas of environmental sensitivity such as wetlands and wildlife migration corridors
SECTION 5 RESOURCES 5.1 ENVIRONMENTAL RESOURCES Environmental Resources Objectives The objectives respecting the use of land that is environmentally sensitive to development in the Plan area are: 1) to encourage the human community to become more ecologically sustainable. 2) to ensure the bio-diversity and sustainment of the island environment by protecting and enhancing habitats.
Cell: E13 Comment: Snug Cove Plan: 2.2 Biophysical Inventory • For undeveloped areas, no disturbance of the vegetated area within a 50-meter setback from a heron nesting tree. In cases where the vegetation has been removed, i.e. the parking lot of the Old General Store, development could take place provided that it respects the construction windows.
3.1 Vision Statement Planning for complete and sustainable communities requires the integration of transportation and land use planning, building and site design, environmental, social and economic development considerations in order to be successful.
3.2 Guiding Principles
Environment • Preserve and protect unique environmental features and sensitive ecosystems • Ensure that sustainable solutions, a balance of social, economic, and environmental values, are used in managing new development
4.3 Environment Davies Creek itself and the heron nesting trees within the Davies Creek riparian area, north and west of the Old General Store, and within Snug Point are significant environmental features in the Cove. Protecting and preserving these environmental features and sensitive ecosystems is important, and respecting these features in the Cove’s land use and circulation patterns is paramount. The foredune ecosystem along the shoreline in Snug Cove has also been identified as an important environmental feature.
Cell: F13 Comment: Bowen Island Municipality Appendix 2a Page 9 TWG Matrix Stage One: Policy Documents Extracts Matrix Appendix 2a
Mission Statement
In carrying out its mandate, Bowen Island Municipality will work towards conducting operations in a way that:
1 Improves the economic, environmental and social well-being for present and future generations;
...
5 Preserves and enhances the unique mix of natural ecosystems and green spaces that Bowen Island possesses.
Cell: G13 Comment: Options Report: Conservation activities aim to reduce the overall need for transportation services and thereby reduce overall energy consumption and emissions. This is largely achieved by locating housing, employment, and services closer together so that people can reduce the amount of travel required for daily activities and increase their use of non-motorized transportation modes such as walking and cycling. Local governments often have the ability to influence the demand for transportation through land-use planning mechanisms, which affect where housing is located relative to services and employment. Achieving reductions in transportation needs requires a decisive effort by local governments and citizens to identify higher-density and mixed land-use strategies which bring services and residences together and increase local employment opportunities. Land-use planning requires that input from community members and other stakeholders be considered. An open dialogue to discuss the advantages and disadvantages of various strategies is recommended. Previous feedback from Bowen Island indicates that a balance between the desire for a rural community, the need to accommodate growth in development, the desire for affordable housing and a reasonable cost of living, the desire for convenient transportation and services, and the desire for reduced energy use and emissions will need to be found.
Cell: B15 Comment: LRSP Policy Directions, p. 13
➤Working with municipal, provincial and federal partners, as well as neighbouring regional districts, to create a transportation system that supports protection of the Green Zone, complete communities, and a compact metropolitan region;
Cell: D15 Comment: OCP 4.1.2 Land Transportation Land Transportation Objectives Pedestrian Objectives 1) to encourage the creation of a public pathway system and supporting infrastructure that: - provides a partially covered walkway from the ferry terminal to the Lady Alexandra walk in Crippen Regional Park; - connects the surrounding areas of Crippen Park with each other; links all parts of the Snug Cove Village together and links the Village to the Park,
Road Policies 4.1.2.7 New roads should not fragment areas of environmental sensitivity such as wetlands and wildlife migration corridors; Appendix 2a Page 10 TWG Matrix Stage One: Policy Documents Extracts Matrix Appendix 2a
Cell: E15 Comment: Snug Cove Plan:
4.4.2 Rationale Incorporating parks and open space, both active and passive, within a compact, complete community helps to maintain its health, identity, and livability. As well, the Regional Park provides an impressive natural setting for the village. This Plan recognizes the value of the natural environment in contributing to the livability of the village, and it recognizes the value of providing an integrated linear park system enabling people to circulate both within the village and between the village and adjacent neighbourhoods and/or recreational amenities without having to use an automobile.
4.4.3 Policies a) Ensure that along the edges of the Regional Park boundary, development and non-Park uses shall respect the presence of the Park by taking into account such items as aesthetic considerations, signage, and linkages. Development Permit Guidelines (Form and Character) will be used to promote a positive visual and aesthetic interface between the park and the community.
c) Recognize the heritage value of the Old General Store and Boulevard Cottage and ensure that they be used in a manner that would be considered compatible with park, community, and heritage values.
d) Provide for greenway linkages through the Park between the Village and the adjoining residential areas and recreational amenities.
Cell: H15 Comment: Crippen Park Key Guidelines a. A gppd fit between the park and the Snug Cove commercial area is essential. The park's location next to a village centre is unique and should be built on to secure maximum appeal to visitors and good serviced to residents. c. A strong pedestrian orientation should be emphasized. Several major park activity centrees will be located within walking distance of the ferry; .. major park activity centres ... accessiblel by a strong pathway system. e. The historic theme is important in park designb and architecture.
Crippen Park General Park Guidelines b. Buffer zones can be used, where possible, to separate non-park residenetial and other neighbouring land uses from high-use areas.
Cell: B17 Comment: LRSP Policy Directions, p. 13
➤Working with municipal, provincial and federal partners, as well as neighbouring regional districts, to create a transportation system that supports protection of the Green Zone, complete communities, and a compact metropolitan region;
Cell: D17 Comment: OCP
2.3 BROAD OBJECTIVES • to promote a Snug Cove village form that caters to the pedestrian and that is appropriate to a small community.
• to recognize Snug Cove Village as the commercial and community heart of Bowen Island, and to provide for the necessary expansion of commercial, residential and community/cultural uses that will contribute towards a pleasant village centre. Appendix 2a Page 11 TWG Matrix Stage One: Policy Documents Extracts Matrix Appendix 2a
4.1.2 Land Transportation Land Transportation Objectives The objectives respecting land transportation in the Plan area are:
Pedestrian Objectives 2) to promote a Snug Cove Village form that caters to the pedestrian.
Road Objectives 4) to allow a free flow of off-loading vehicles from the ferry to other parts of the island and to the Snug Cove commercial areas. 5) to provide ferry marshalling spaces in a manner that least affects the character and functioning of the village centre, while maintaining the amenities of the surrounding park and residential areas.
Cell: E17 Comment: Snug Cove Plan:
• Ensure that sustainable solutions, a balance of social, economic, and environmental values, are used in managing new development • Preserve the ambiance of a small compact village • Enhance the park ambience by integrating the built environment of the Cove with the surroundings of a park setting – “village within a park” • Respect the heritage character of the Cove • Accommodate a mix of uses, in particular businesses, housing, marine, community, and civic facilities • Establish the Cove as the economic, social, and cultural center of the Island with the Miller Road / Government Road intersection as the primary focal point • Promote the Cove as a place to work, live, shop, recreate and visit and as a focal point for arts and culture • Provide a climate for businesses to thrive in the Cove
4.1.2 Commercial Development The lower Cove should be revitalized to enhance the gateway to the community, while the mid and upper Cove commercial areas need to be strengthened. Maintaining a tight Village centre area instead of spreading it out is desirable.
Cell: D19 Comment: OCP
2.2 PRINCIPLES X service policies and objectives including those applicable to public services such as transportation, water supply, waste disposal, and community services and private services such as service commercial shall be deemed to be responsive and secondary to other policies and objectives of this Plan and shall not be used to anticipate or generate demand for land use or growth
4.1 TRANSPORTATION SERVICES Objectives The objectives respecting transportation services in the Plan area are: 2) to ensure that transportation services do not encourage population growth.
Appendix 2a Page 12 TWG Policy Extracts Appendix 2b
GVRD Livable Region Strategic Plan
INCREASE TRANSPORTATION CHOICE, p. 13 Greater Vancouver has historically been in love with the car. As the region’s population continues to grow, our dependence on the private automobile needs to be reduced if we are to have any chance of addressing the issues of air pollution, congestion and the spiraling public costs associated with them. The size of the problem is immense. Compared with other large urban areas in Canada, Greater Vancouver has a high rate of car ownership, a low supply of transit per capita, and relatively low transit ridership. The time it takes to travel between work and home keeps increasing because the distances are greater and the number of cars on the road is way up.
The Livable Region Strategic Plan establishes the region’s approach to reversing these trends, by: Working with municipal, provincial and federal partners, as well as neighbouring regional districts, to create a transportation system that supports protection of the Green Zone, complete communities, and a compact metropolitan region;
Managing growth and development to reduce travel distances and emphasize transit, cycling and walking as the priorities; and
Encouraging certain types of transportation, such as transit and carpools, and discouraging others, such as the single occupant vehicle.
These objectives are described in detail in the Transport 2021 Medium and Long-Range Transportation Plans for Greater Vancouver, which are linked by policy and specific objectives to the Livable Region Strategic Plan.
The regional transportation objectives need time, money and patience to become reality. The Strategic Plan recognizes that the private automobile will continue to be the dominant way of getting around the region for the foreseeable future. At the same time, it relies on public transit and other high occupancy forms of travel to provide the additional transportation capacity needed to respond to population and economic growth. The transportation objectives will be reinforced and implemented in large part through the programs and projects initiated by TransLink, Greater Vancouver’s new regional transportation authority.
DID YOU KNOW? “Transportation Demand Management” or “TDM” is intended to encourage changes in people’s travel behaviour in order to reduce traffic and congestion. This is usually done by switching from single occupant vehicle travel to one of the alternatives, such as public transit, reducing the number of trips we make, or travelling at “off peak” times. Transportation sources (vehicles and other “mobile sources”) account for nearly 40% of greenhouse gas emissions in our region. —Source: 1998 Emission Inventory for the Lower Fraser Valley Airshed
Transportation Choice Policies, p. 23 In order to increase transportation choice, and to implement the GVRD Board’s decisions on June 29, 1994 to approve the Transport 2021 Long-Range and Medium-Range Plans, the Board will:
13. enter into partnerships with GVRD member municipalities, other Lower Mainland regional districts, the provincial government and its agencies and the federal government and its agencies to plan and deliver a transportation system that supports the protection of the Green Zone, the development of complete communities and the realization of a compact metropolitan region.
14. pursue Transportation Demand Management (TDM) strategies as a fundamental transportation requirement for achieving the goals and objectives of this Strategic Plan.
15. enter into partnerships with GVRD member municipalities, local, provincial and federal governments and private organizations for the establishment of a regional capability to develop, co-ordinate, implement and monitor TDM strategies.
Appendix 2b Page 1
TWG Policy Extracts Appendix 2b
16. seek through partnerships on increasing transportation choice: 16.1 to plan and implement a transit-oriented and automobile-restrained transportation system for the region based on intermediate capacity transit facilities (including light rail transit, SkyTrain and high-capacity busways) within the identified corridors; 16.2 to provide a variety of local transit services and networks with the flexibility to serve different demands in support of the complete communities and the compact metropolitan region; 16.3 to assign priority for increased roadway capacities first to high occupancy vehicles, goods movements, inter-regional movements and then single-occupant automobiles; 16.4 to enhance and/or retrofit local streets and infrastructure to favour transit, bicycle and pedestrian uses; 16.5 to maintain appropriate levels of service for inter-regional and truck movements through the Lower Mainland by pursuing transportation system management strategies and measures including access restriction and future corridor and right-of-way protection; 16.6 to plan and implement transportation services and facilities with priority given to areas identified for above-trend population and employment growth.
17. enter into partnerships with GVRD member municipalities, the provincial government and its agencies, and other organizations to monitor the implementation of transportation policies and strategies by conducting periodic reviews involving research, planning and data collection.
Appendix 2b Page 2
TWG Policy Extracts Appendix 2b
Islands Trust Policy Statement
Nature of Policies Policies in the Policy Statement Promote: • preservation and protection of ecosystems-protecting the natural systems that sustain us, • stewardship of resources-responding sensitively to the inherent capacities and limitations of resources, and • sustainable communities-communities in which development and activities are managed in accordance with environmental capability, valued attributes are protected, and individuals play a participatory role in the making of decisions that affect them.
Guiding Principles • voluntary stewardship of Trust Area resources and amenities, • preservation and protection of the Trust Area's environment, • management of growth, • utilization of local knowledge in decision-making processes, and • provision for public participation in such processes.
5.3 Transportation and Utilities Directive Policies 5.3.4 Local trust committees and island municipalities shall, in their official community plans and regulatory bylaws address the development of a classification system of rural roadways, including scenic or heritage road designations, in recognition of the object of the Islands Trust. 5.3.5 Local trust committees and island municipalities shall, in their official community plans and regulatory bylaws, address the impacts of road location, design, construction and systems. 5.3.6 Local trust committees and island municipalities shall, in their official community plans and regulatory bylaws, address the designation of areas for the landing of emergency helicopters. 5.3.7 Local trust committees and island municipalities shall, in their official community plans and regulatory bylaws, address the development of land use patterns that encourage establishment of bicycle paths and other local and inter-community transportation systems that reduce dependency on private automobile use.
Appendix 2b Page 3
TWG Policy Extracts Appendix 2b
Bowen Island Official Community Plan
2.2 PRINCIPLES X service policies and objectives including those applicable to public services such as transportation, water supply, waste disposal, and community services and private services such as service commercial shall be deemed to be responsive and secondary to other policies and objectives of this Plan and shall not be used to anticipate or generate demand for land use or growth.
2.3 BROAD OBJECTIVES • to promote a Snug Cove village form that caters to the pedestrian and that is appropriate to a small community.
• to recognize Snug Cove Village as the commercial and community heart of Bowen Island, and to provide for the necessary expansion of commercial, residential and community/cultural uses that will contribute towards a pleasant village centre.
3.7 COMMERCIAL LAND USE The objectives respecting commercial land use in the Plan area are: 7) to provide for commercial facilities, including commercial recreational facilities, which minimize the need for visitor motor vehicle use. 8) to ensure that commercial facilities provide adequate parking facilities. 9) to ensure the Snug Cove village area is sufficiently large to accommodate future commercial land requirements.
SECTION 4 SERVICES
4.1 TRANSPORTATION SERVICES
Objectives The objectives respecting transportation services in the Plan area are: 1) to provide safe and efficient transportation that meets the needs of residents and visitors on Bowen Island. 2) to ensure that transportation services do not encourage population growth. 3) to encourage alternative transportation systems (eg taxis, water taxis, bicycles, etc.) to relieve congestion created by private automobile use. 4) to ensure that transportation systems or services are designed to minimize environmental impact.
4.1.1 Water Transportation Water Transport Objectives The objectives respecting water transportation in the Plan area are:
1) to facilitate water transportation services and private marine craft access for the benefit of visitors and residents of Bowen Island.
2) to encourage flexibility in water terminal facility design in order to accommodate the changing technology in ferry design and the changing modes of transport.
3) to request the B.C. Ferry Corporation to: a) provide an adequate level of service for the needs of residents; b) ensure that expansion of ferry services follows, rather than anticipates, demand; c) to facilitate the use of transportation systems other than the private automobile on or connecting to the ferries. Appendix 2b Page 4
TWG Policy Extracts Appendix 2b
4) to encourage the District of West Vancouver and B.C. Ferry Corporation to examine means to accommodate overnight parking in Horseshoe Bay as a means to minimize vehicle traffic on the B.C. Ferry to Bowen Island;
5) to encourage the Harbours and Ports Branch of the Canadian Coast Guard to provide permanent and assured moorage space at the Snug Cove wharf for vessels that provide a community service and for transient moorage. 6) to encourage BC Transit, B.C. Ferry Corporation and any operator of public transportation services on Bowen Island to provide integrated scheduling of services.
Water Transport Policies
The policies respecting water transportation in the Plan area are:
4.1.1.1 Ferry Terminal facilities should be developed in accordance with the land transportation policies of this Plan;
4.1.1.2 The B.C. Ferry Dock and the Snug Cove government wharf shall continue to be located in the area identified as WT (Water Transport) as identified on Schedule B-1 (Snug Cove Designations);
4.1.1.5 Passenger only ferry service may be considered provided that parking and on island transportation requirements are addressed prior to the initiation of such a proposal.
4.1.2 Land Transportation Land Transportation Objectives The objectives respecting land transportation in the Plan area are:
Pedestrian Objectives 1) to encourage the creation of a public pathway system and supporting infrastructure that: - with the assistance of B.C. Ferry Corporation provides an attractive entry from the ferry through an enhanced ferry passenger reception area with washroom facilities, a bicycle storage locker area, a passenger pickup/waiting zone with a shelter in association with a transit parking location; - provides a partially covered walkway from the ferry terminal to the Lady Alexandra walk in Crippen Regional Park; - connects the surrounding areas of Crippen Park with each other; links all parts of the Snug Cove Village together and links the Village to the Park, - provides a shared-use trail network for pedestrians, bicycles and equestrians; enhances the natural outdoor experience of Bowen Island by serving as an alternate transportation mode on the island and a general recreational resource; and provides pedestrian access in local neighbourhoods. 2) to promote a Snug Cove Village form that caters to the pedestrian.
3) to ensure that road right of way design incorporates a capability for safe pedestrian movement especially linked to trailheads.
Road Objectives
4) to allow a free flow of off-loading vehicles from the ferry to other parts of the island and to the Snug Cove commercial areas. Appendix 2b Page 5
TWG Policy Extracts Appendix 2b
5) to provide ferry marshalling spaces in a manner that least affects the character and functioning of the village centre, while maintaining the amenities of the surrounding park and residential areas.
6) to encourage the provision of a road system that will reduce conflicts between ferry and local traffic, give the pedestrian precedence over the automobile within the Snug Cove village centre and provide safe bicycle shoulders or lanes, particularly in areas of traffic near the ferry terminal and main rural roads.
7) to develop a road and transportation system in keeping with the rural nature and scenic beauty of the island.
8) to minimize the public costs of road development and maintenance.
Parking Objectives
15) to provide for short term commuter parking requirements within the village and to accommodate longer term demands on the village periphery.
16) to ensure that commuter parking lots serve other functions such as park visitors or special community events.
17) to encourage grouped, off-street parking to serve the village centre.
19) to ensure that adequate off-street parking is available to serve the use of any lot.
20) to encourage adequate and secure bicycle parking facilities at recreational, commercial and community facilities on the island.
Parking Policies 4.1.2.15 While commuter parking in Snug Cove is not encouraged if alternative on island transportation can be developed, it is recognized that parking should be provided to help reduce the number of vehicles on the ferry. Commuter Parking should be developed as part of any new ferry marshalling area and in the interim should be provided in the area designated PK (Parking) on the north side of Government Road. This lot will also function as a visitor parking lot on weekends. Commuter parking may also be provided in other designated parking areas when they are not being used for other parking requirements;
Land Transportation Policies Pedestrian Policies 4.1.2.2 A paved shoulder or sidewalk or trail available for pedestrian use shall be provided as part of any Main Rural road and all roads shall have a gravel shoulder(s) useable for pedestrian and equestrian purposes in accordance with agreements between the Islands Trust and the Ministry of Transportation and Highways;
4.1.2.3 Developed roadbeds should, where possible, be located to one side of a road right-of-way to allow for possible future development of trails or walkways within the right of way but separated from the developed roadbed
Road Policies 4.1.2.7 New roads should not fragment areas of environmental sensitivity such as wetlands and wildlife migration corridors;
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TWG Policy Extracts Appendix 2b
4.1.2.8 In order to protect the character of individual communities on the island and as a means of deterring increased automobile traffic, an island perimeter road shall not be permitted;
4.1.2.9 Roads designated as part of a bicycle route plan developed in accordance with the agreement with the Ministry of Transportation and the Islands Trust shall have a paved bicycle lane not less than 1.2 metres wide in order to enhance safety;
4.1.2.10 Roads designated as being of scenic or heritage value on schedule D (Road Map) should not be widened except where required as a safety measure and speed limits should be reduced on these roads as a means to increase safety;
4.1.2.11 “BC Ferry Services Inc. and the GVRD are encouraged to work with the Municipality to address ferry marshalling issues, with the intent of developing a plan for a ferry marshalling area. Any plan for the ferry marshalling area shall incorporate visual and sound attenuation devices to protect the residential and park values of the surrounding area.”;
4.1.2.12 Government Road shall continue to be used for ferry marshalling, local traffic, and commercial parking until a ferry marshalling area is constructed, after which the road should be altered to a cul de sac at the east end. One lane of traffic in each direction should then be permitted between the cul de sac and the ferry marshalling turnoff for local use with parking on either side. Access will have to be provided from the Ferry Marshalling area to Cardena Road;
4.1.2.13 Access and road development should be reviewed as development in Crippen Regional Park, the area surrounding the school and special needs housing or community facilities develop within the Snug Cove area;
Parking Policies 4.1.2.14 Parking for the disabled and special needs shall be encouraged close to commercial buildings;
4.1.2.15 “Commuter parking should be developed as part of any new ferry marshalling area and may also be provided in other designated parking areas when they are not being used for other parking requirements.
4.1.2.16 “Parking in Snug Cove shall be in accordance with the applicable policies in the Snug Cove Village Plan (Schedule K)”.
4.1.2.17 Parking for other service commercial areas of the village should be met on-site or in very close proximity;
4.1.2.18 Bicycle stands should be provided adjacent to recreation, community or commercial facilities.
SECTION 5 RESOURCES 5.1 ENVIRONMENTAL RESOURCES Environmental Resources Objectives The objectives respecting the use of land that is environmentally sensitive to development in the Plan area are: 1) to encourage the human community to become more ecologically sustainable. 2) to ensure the bio-diversity and sustainment of the island environment by protecting and enhancing habitats. 3) to protect environmentally sensitive areas (ESAs). 4) to encourage environmentally benign development.
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TWG Policy Extracts Appendix 2b
5) to educate residents and visitors about island ecology and the importance of understanding the cumulative effects of environmental impacts. 6) to encourage community groups and educational institutions to develop programs to increase community awareness of Bowen's environmentally sensitive and hazardous areas, what harms the environment, what the cumulative effects of environmental impacts are, and to recognize individuals or groups who have demonstrated exemplary care and attention to the natural environment.
5.2 ENERGY RESOURCES Background Electrical, telephone, and cablevision services are provided from off-island locations to serve island needs. Heating fuel is brought onto the island except for firewood which is available on-island. Alternative energy including wind and solar resources are used by some residents, but on a limited scale. Bowen also provides a location for receiving and transmitter facilities that enhance communications throughout British Columbia for telephone, cablevision, and other forms of communication.
Energy Resource Objectives The objectives with respect to energy resources and public utility land uses in the Plan area are: 1) to support the use and development of clean energy resources which are self sustaining and which have minimal impacts upon the environment as compared to alternatives. 2) to support the use of energy resources available on Bowen Island in lieu of importing similar resources from off-island locations. Energy Resource Policies The objectives with respect to energy resources and public utility land uses in the Plan area are: 5.2.1 Land uses and services which make efficient use of energy resources and which are unobtrusive to adjacent properties or to the landscape of Bowen Island will be supported subject to other applicable policies of this Plan including but not limited to home occupation land use, public and collective transportation systems, nonpolluting forms of transportation, telecommunications, and alternative non polluting heating and energy supply systems; 5.2.2 Bowen's role in providing telecommunication services to British Columbia is recognized provided those services have no significant impact upon the environment, are unobtrusive to the Bowen landscape and do not pose a risk to the public health; 5.2.3 Development of Bowen's energy resources beyond local needs should not be permitted unless there are proven net environmental benefits to Bowen Island and a receiving environment; 5.2.4 Transmission lines and facilities on Bowen should be developed in a manner that is visually attractive and has no significant impact on the human and natural environment; 5.2.5 Site specific utility installations including maintenance and storage yards and communication towers shall be subject to zoning regulation;
Energy Resource Policies 5.2.1 Land uses and services which make efficient use of energy resources and which are unobtrusive to adjacent properties or to the landscape of Bowen Island will be supported subject to other applicable policies of this Plan including but not limited to home occupation land use, public and collective transportation systems, nonpolluting forms of transportation, telecommunications, . . .
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TWG Policy Extracts Appendix 2b
5.3 HERITAGE RESOURCES 5.3.6 The Ministry of Transportation and Highways and the Municipality shall consult with each other before any major works are undertaken on the heritage designated roads identified on Schedule D (Road Map) and all efforts shall be undertaken to retain the heritage values that exist on these roadways and on any future extensions of such roads into new development
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TWG Policy Extracts Appendix 2b
Snug Cove Village Plan BOWEN ISLAND MUNICIPALITY BYLAW NO. 137, 2004
2.2 Biophysical Inventory • For undeveloped areas, no disturbance of the vegetated area within a 50-meter setback from a heron nesting tree. In cases where the vegetation has been removed, i.e. the parking lot of the Old General Store, development could take place provided that it respects the construction windows.
3.1 Vision Statement Planning for complete and sustainable communities requires the integration of transportation and land use planning, building and site design, environmental, social and economic development considerations in order to be successful.
In the short term, ferry marshalling will continue to occur on Government Road, in a reconfigured manner that is intended to improve pedestrian and vehicular traffic movement within the Cove and provide a more appealing entry to the community.
3.2 Guiding Principles
Environment • Preserve and protect unique environmental features and sensitive ecosystems • Ensure that sustainable solutions, a balance of social, economic, and environmental values, are used in managing new development
Scale, Character, and Aesthetics • Preserve the ambiance of a small compact village • Promote a pedestrian oriented environment • Enhance the park ambience by integrating the built environment of the Cove with the surroundings of a park setting – “village within a park” • Respect the heritage character of the Cove
Land Use Mix • Accommodate a mix of uses, in particular businesses, housing, marine, community, and civic facilities • Establish the Cove as the economic, social, and cultural center of the Island with the Miller Road / Government Road intersection as the primary focal point • Promote the Cove as a place to work, live, shop, recreate and visit and as a focal point for arts and culture • Accommodate higher density and small lot residential development in the Village Centre as a means of working towards achieving a sustainable and complete community
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TWG Policy Extracts Appendix 2b
Transportation Gateway and Corridor • Create an entry to the community that is aesthetically pleasing • Strike a balance for the function of Government Road as both a corridor to the ferry and a “main street” to the community • Find better ways of managing ferry marshalling, short and long term commuter parking, foot passenger/pedestrian access, and parking for businesses
Economic Activity • Provide a climate for businesses to thrive in the Cove • Provide for a mix of commercial activities catering both to the needs of both residents and visitors • Ensure that development regulations are effective and do not deter development opportunities, while ensuring that other values are upheld • Support the businesses in Snug Cove in their promotion and marketing initiatives
4.1.2 Commercial Development The lower Cove should be revitalized to enhance the gateway to the community, while the mid and upper Cove commercial areas need to be strengthened. Maintaining a tight Village centre area instead of spreading it out is desirable.
4.1.2 Commercial Development Policies d) Restrict commercial development on the north side of Government Road to theGovernment Road / Miller Road intersection, except for the Old General store. h) Support initiatives that would result in enhancing public transportation to Snug Cove.
4.2 Marine 4.2.1 Description of Designation 4.2.3 Policies a) Accommodate the types of uses of and the character of development on the municipal docks that provide the public with the opportunity to enjoy visual and pedestrian access to the water’s edge, while recognizing that the docks also serve transportation and operational functions
4.3 Environment Davies Creek itself and the heron nesting trees within the Davies Creek riparian area, north and west of the Old General Store, and within Snug Point are significant environmental features in the Cove. Protecting and preserving these environmental features and sensitive ecosystems is important, and respecting these features in the Cove’s land use and circulation patterns is paramount. The foredune ecosystem along the shoreline in Snug Cove has also been identified as an important environmental feature.
4.3.1 Policies a) Require that all new development proposals respond satisfactorily to the critical environmental resources identified above and all necessary measures are undertaken to protect said resources, including adherence to the standards set out in the Riparian Area Regulations. c) Minimize the disturbance of environmentally sensitive land by directing development to other areas.
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TWG Policy Extracts Appendix 2b d) Maintain the forest backdrop of the south side of Snug Cove. e) Include the heron nesting area lands within a Development Permit Area. This policy will be revisited if and when it can be demonstrated scientifically that the herons no longer use the heron nesting areas. f) Establish a 30-meter non-disturbance zone for Davies Creek. In cases where the vegetation has already been removed, i.e. the lower grassed area south of the ball diamond, and the open areas within the Davies orchard area, the setback for development should be at least 15 meters from the top of bank of the creek, and the setback area should be replanted with native shrubs and trees to enhance the riparian habitat. g) Protect areas within Crippen Regional Park that support diverse wildlife and ecological values. h) Support expansion of the present foredune ecosystem at the mouth of Davies Creek. Utilize management principles to address the presence of the marina operations and recreational use of Crippen Regional Park. i) Require new development to incorporate sustainable design features and greenbuilding technology pertaining to such building elements as energy and water efficiency and waste management technologies.
4.4 Crippen Regional Park 4.4.2 Rationale Incorporating parks and open space, both active and passive, within a compact, complete community helps to maintain its health, identity, and livability. As well, the Regional Park provides an impressive natural setting for the village. This Plan recognizes the value of the natural environment in contributing to the livability of the village, and it recognizes the value of providing an integrated linear park system enabling people to circulate both within the village and between the village and adjacent neighbourhoods and/or recreational amenities without having to use an automobile.
4.4.3 Policies a) Ensure that along the edges of the Regional Park boundary, development and non-Park uses shall respect the presence of the Park by taking into account such items as aesthetic considerations, signage, and linkages. Development Permit Guidelines (Form and Character) will be used to promote a positive visual and aesthetic interface between the park and the community. c) Recognize the heritage value of the Old General Store and Boulevard Cottage and ensure that they be used in a manner that would be considered compatible with park, community, and heritage values. d) Provide for greenway linkages through the Park between the Village and the adjoining residential areas and recreational amenities.
4.5 Transportation and Parking Government Road and the ferry terminal dominate transportation issues within Snug Cove Village. Revitalization of the Village will have to take place within this context, that being that the ferry terminal will continue to operate at its present location for the foreseeable future, and Government Road will continue to play a number of roles within the Village including providing access to the commercial businesses within the mid and lower Cove and functioning as a route for ferry traffic. Appendix 2b Page 12
TWG Policy Extracts Appendix 2b
The Snug Cove Village Plan attempts to strategically address the following issues: loading and unloading of the ferry, pedestrian safety and maneuverability, foot passenger access, commuter parking, accommodation of public transportation, providing an entry to the community that is aesthetically pleasing, and striking a balance for the function of Government Road as both a corridor to the ferry and a “main street” to the village. This Plan also recognizes that there are other modes of transportation that need to be accommodated and promoted in order for the Village to achieve complete and sustainable status, namely pedestrian, cycling, and transit. Cycling and walking are key forms of transportation in a compact and complete community. Residents and visitors of the Village should have access to both road/sidewalk and purpose-built trails to circulate within the village and connect to the adjoining neighbourhoods and recreational amenities.
4.5.1 Transportation Policies a) Support the completion of a Traffic Management Plan to identify solutions for improved circulation within the Cove, in particular to provide for a safe separation of pedestrian and vehicular traffic, convenient foot passenger pick up/drop off, and a bus/taxi unloading/loading area near or adjacent to the ferry terminal. b) Create a more positive pedestrian realm along Government Road through the provision of wide sidewalks, landscaping, special paving treatments, and coordinated street furniture. c) Provide for centralized, weather protected, and safe bike storage/parking at the Ferry foot passenger building. d) Provide for greenway linkages between the Cove and adjoining neighbourhoods and recreational amenities. e) Require the provision of bicycle racks for new developments within the Cove. f) Create safe and interesting bicycle routes as part of a greenways system. g) Ensure that transit vehicles can maneuver easily and efficiently within the Cove.
4.5.2 Ferry Transportation Policies a) For the short term, retain the Government Road corridor as the ferry marshalling area in order to minimize major intrusion within Crippen Regional Park. b) Redesign Government Road east of Cardena Street to better accommodate ferry loading and unloading, transit vehicles, pedestrian movement, and parking while incorporating landscape elements in order to improve its aesthetic appearance as the gateway to the community. c) Regarding potential long term solutions (for example incorporating ferry marshalling within Crippen Regional Park on the north side of Government Road or widening of Government Road), undertake detailed feasibility studies regarding the social, economic, and environmental impacts and concerns of the various stakeholders, prior to determining a preferred solution. Public consultation will play an important role in the decision making process. Relocating the ferry terminal to the south side of Snug Cove is not considered a desirable long term option. d) Commence negotiations with BC Ferry Corporation regarding infrastructure requirements for a larger vessel.
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TWG Policy Extracts Appendix 2b
e) Encourage BC Ferry Corporation to provide a new foot passenger building so as to improve conditions for foot passengers waiting to board the ferry.
4.5.3 Parking Policies a) Seek locations for ferry parking that are within approximately 500 meters of the ferry terminal and within the Village centre. b) Utilize lands that already have been disturbed to accommodate parking areas, or integrate parking areas within sites that are to be used for community facilities.
Appropriate locations for parking are identified as follow: i) behind the RCMP building; ii) south side of Government Road west of the ferry terminal; iii) existing parking areas; iv) all sites designated for civic or community facility uses with underground parking whenever possible and without extensive site disturbance; v) the unused portions of the Cardena Road allowance; vi) the Parks Service area adjacent to the sewage treatment plant if and when the Parks Service area is so relocated; and vii) the land adjacent to and behind the Old General Store. c) Avoid the creation of new surface parking lots at or near the ferry terminal east of Cardena St. and ensure that if they are to be located within the Village Centre, they be visually screened or placed underground. d) Ensure that all buildings are provided with handicap access and handicap parking spaces as per the Land Use Bylaw and applicable requirements of the Building Code.
5.1 Heron Nesting Area Development Permit Area 5.1.3 Special Conditions
There is a heron colony nesting in Snug Cove. The coastal subspecies is federally listed at “risk” and provincially listed as “vulnerable” or “blue listed” species. Notwithstanding the applicable provincial and federal regulations, there is a need to better protect the habitat of the nesting areas.
4) In undeveloped areas, there should be no disturbance of trees and vegetation within a 50- meter radius from an active heron nesting tree.
5) In cases where trees and vegetation have already been removed from within the 50-meter radius area, i.e. the parking lot of the Old General Store, development could take place provided that it respects the construction windows.
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TWG Policy Extracts Appendix 2b
Bowen Island Municipality Mission Statement
In carrying out its mandate, Bowen Island Municipality will work towards conducting operations in a way that:
1 Improves the economic, environmental and social well-being for present and future generations;
2 Encourages and fosters community involvement;
3 Enhances the small, friendly, caring character of the community;
4 Maintains an open, accountable and effective operation; and
5 Preserves and enhances the unique mix of natural ecosystems and green spaces that Bowen Island possesses.
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TWG Policy Extracts Appendix 2b
Bowen Island Community Energy Planning Options Report Pembina Institute and the Community Energy Association, 2003
The Council Resolution 04-45 chose 2000 emissions levels by 2010 as the CEP’s target. In real terms, this means, in CO2 equivalent tones: Year 2000 Projected 2010 On-island transportation: 2,721 4,300 Off-island transportation: 10,327 16,318 Ferry 7,381 7,381 Bus 40 90
The PCP program has suggested that municipalities adopt a target equivalent to 6% below baseline levels within 10 years of joining the PCP program. In addition, they suggest that the Municipality aim to achieve a reduction of 20% within their own emissions. Emissions from the corporate functions of the Bowen Island Municipality have not yet been assessed. A 6% reduction below total 1996 levels, as suggested by the baseline, would require that emissions be stabilized at about 18,000 tonnes into the future. This translates to an actual emission reduction of about 45% below projected levels in 2010. (page xii)
To ensure that any selected target is robust to a number of potential political outcomes before 2008 when Canada will be legally obligated to manage emissions, it is recommended that the following principles be considered: • Encouraging financial performance – targets should be flexible so that a number of options can be implemented to meet targets at the lowest possible cost. • Interim targets – it is a good idea to establish several interim targets to ensure that progress is made – for 2005, 2008, 2010, and/or 2012. The interim targets could be less aggressive than subsequent ones, given that the community and the economy would establish mechanisms to deliver emission reductions in a more cost-effective fashion as experience is gained from previous targets. (page xiii)
• Approximately 62% of the total energy consumption on Bowen Island in the year 2000 was for transportation, with, on average, 8% of total energy being for on-island transportation, 30% for commuters in private vehicles off-island, and 24% for ferry operation for the three years investigated. (page 5)
• GHG emissions grew by 22% between 1996 and 2000, or about 5.0% per year. • Between 1996 and 2010, growth is expected to be 72%, or about 3.9% per year. • About 88% of the total GHG emissions on Bowen Island are from transportation, with, on average, 12% of total emissions from on-island transportation, 45% from commuters in private vehicles off-island, and 31% for emissions from ferries over the three years investigated. (page 6)
2.5 Baseline Conclusions Through analysis of the energy and emissions baseline for Bowen Island, several important conclusions can be drawn: • Increased energy consumption and emissions on the island between 1996 and 2010 can be attributed to four main factors: o The population is increasing. The annual growth rate is estimated at 2.2% between 1996 and 2000 and 2.5% between 1996 and 2010. o The number of vehicles per resident is increasing. The total number of vehicles is estimated to have an annual growth rate of 4.7% between 1996 and 2010. This is higher than the population growth estimates. o An increased proportion of all vehicles are classified as “light-duty trucks” (i.e., SUVs and minivans). GVRD estimates for 1996 indicate that 71% of vehicles were light-duty cars and 22% were light-duty trucks. Data from the Insurance Company of British Columbia indicate that on Bowen Island in 2000, 52% of vehicles were classified as light-duty trucks and 40% as light-duty cars. While the apparent conclusion is that light-duty trucks have doubled, it must be noted
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TWG Policy Extracts Appendix 2b that the data come from two different sources. Future work in this area should align the data source for 1996 and 2000. (page 9)
The off-island operation of vehicles is the largest source of energy consumption and GHG emissions. It is also a significant contributor to CO, VOC, NOX and SOX emissions, as well as the largest personal cost to island residents. (page9)
The ferry operation is the second largest source of GHG emissions and the third largest energy consumer. The ferry is also the largest emitter of NOX and SOX and a significant contributor of PM emissions. (page 9)
The on-island operation of vehicles is the third largest source of GHG emissions and one of the largest sources of CO, VOC, NOX and SOX emissions on the island. (page 9)
The following types of sustainable energy options were considered: • Sustainable transportation options which facilitate reduced energy consumption for personal and municipal transportation both on and off the island. This includes options to reduce the energy use in personal motor vehicles and to facilitate the use of motorized and non-motorized alternative transportation forms. The goal of these options is to facilitate reductions in transportation energy use along with expenditures and emissions. (page 10)
The transportation sector is responsible for about 62% of the total energy consumption on Bowen Island with off-island transport accounting for the majority of energy use. Its relative proportion is assumed to increase by 2010 due to an increase in the number of vehicles per resident. The transportation sector is responsible for about 85% of the GHG emissions from Bowen Island with off-island motor vehicle use again accounting for the majority of these emissions. (page 11)
Conservation activities aim to reduce the overall need for transportation services and thereby reduce overall energy consumption and emissions. This is largely achieved by locating housing, employment, and services closer together so that people can reduce the amount of travel required for daily activities and increase their use of non-motorized transportation modes such as walking and cycling. Local governments often have the ability to influence the demand for transportation through land-use planning mechanisms, which affect where housing is located relative to services and employment. Achieving reductions in transportation needs requires a decisive effort by local governments and citizens to identify higher-density and mixed land-use strategies which bring services and residences together and increase local employment opportunities. Land-use planning requires that input from community members and other stakeholders be considered. An open dialogue to discuss the advantages and disadvantages of various strategies is recommended. Previous feedback from Bowen Island indicates that a balance between the desire for a rural community, the need to accommodate growth in development, the desire for affordable housing and a reasonable cost of living, the desire for convenient transportation and services, and the desire for reduced energy use and emissions will need to be found.
Efficiency aims to minimize the energy consumption and/or emissions per passenger-kilometer of transportation service either by modifying existing modes or introducing new ones. Virtually all communities in Canada have opportunities to improve the efficiency of transportation. This can be achieved by improving the fuel economy or emissions of existing transportation modes and reducing overall energy consumption. Alternatively, efficiency can be improved by increasing the number of passengers which share a mode – whether it be through the facilitation of car pooling or through public transportation modes. Success depends on the introduction of viable alternatives to private motor-vehicle use which are cost-effective and convenient. This often requires a decisive commitment from local government or transportation authorities to provide convenient alternatives. Also, neighbourhoods with higher density development are more conducive to high-efficiency transportation modes than rural areas due to economies of scale in the number of users.
Renewable energy aims to increase the use of renewable fuels in vehicles. These fuels typically have lower environmental impacts than conventional fuels. Examples of renewable energy include biofuels such as biomass derived ethanol and bio-diesel and the use of green electricity to
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TWG Policy Extracts Appendix 2b charge electric vehicles. Renewable energy is obtained from non-depletable resources that are derived in a sustainable manner. Generally speaking, they produce substantially lower GHG emissions than fossil fuels. Most existing transportation modes can use a blend of renewable and fossil fuels with current designs. In the future, zero-emission transportation modes based on hydrogen fuel cells or other electric power trains will become cost effective for broad application. Several specific sustainable transportation options were developed in consultation with the BISCTF. A preliminary assessment of options is provided in the following sections. Further consultation with Municipal Council and the general public is required to determine the feasibility of these options and identify additional options. One of the Bowen Island Sustainable Community Task Force recommendations, supported by Bowen Island Municipal Council, has already established the following commitment related to sustainable transportation4: That Council direct planning staff to include in the draft Official Community Plan amendment for Snug Cove, a provision that the addition of density to the Cove area be derived from the transfer of density from other parts of the island, particularly watershed and ecologically sensitive areas. (page 11-12)
Off-island personal vehicle travel accounts for around 29% of the energy consumed and 44% of the GHGs emitted by Bowen Island residents. The majority of trips are likely work-related and occur during peak travel times. The 1996 census indicated that 44% of the Bowen Island labour force works off of the island, with the highest number, approximately 330, working in Vancouver. Other areas where more than 50 people work are West Vancouver and North Vancouver. The 1996 census also indicated that 64% of the labour forces drive themselves to work. Results from the 2001 Census, which were made available following the completion of this analysis for this chapter, show similar results and are illustrated in Figure 5 on pg. . For each commuter that no longer drives to work alone, one vehicle is taken off the road. There are a number of different methods to achieve this objective, including car-pools, van-pools, public transit, walking, cycling or telecommuting. Based on the 1996 Census, 64% of employed workers on the island drive to work. If this number could be reduced to 54% (to approximately 160 drivers), 7903 GJ of gasoline could be saved each year (based on an average of 50 km travel each workday and 12.3 l/100 km fuel economy). This corresponds to 1.9% of the island’s total energy consumption. It does not take into account the increased bus service that would be required nor does it include the drivers of van and car pools within the 160 drivers that have been removed from the road. (page 15)
Through discussions with members of the BISTF, Translink officials, and the operator of the Bowen Island bus fleet, it was concluded that there are definite opportunities to improve the convenience and capacity of the existing transit services. Many conversations centered around serving the commuter market, since the largest volume of people travel during the peak commuting times and thus has the largest potential for reducing energy use and emissions for, presumably, the least cost. Following are a few examples of specific opportunities that have already been identified: • increasing capacity of the transit buses on the island; • increasing the number of buses meeting the ferry off the island during peak times to service additional routes; • improving coordination between existing buses and ferries to prevent missing connections or long wait times; • reducing transfer times to and from the Bowen Island ferry by dedicating West Vancouver Blue Buses for Bowen residents only; and/or
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TWG Policy Extracts Appendix 2b
• dedicating one or more buses that travel directly from Bowen Island to downtown Vancouver along the fastest route(s) available. The route may start on the island and include transport on the ferry. (page 25)
Context It was estimated that 37% of residents’ total energy consumption and 56% of their total GHG emissions result from personal vehicle use on and off the island. Public transit is an excellent method to reduce the use of personal vehicles on a daily basis; however, the current level of service provided by the regional transit authority, Translink, and BC Ferries could be improved to reduce the real or perceived inconveniences of public transit and create more transit users. Energy Impact The energy benefits from a higher number of Bowen Island residents using public transit on a daily basis is dependent on the way in which transit service is enhanced and the number of vehicles removed from the road. For example, if a new bus service from Bowen Island to downtown Vancouver has an average ridership of 82 people (a 35% increase in overall transit ridership for Bowen Island commuters), it is expected that about 71 lightduty vehicles could be taken off the road, and annual energy savings of 3,000 GJ would be achievable. Level of Economic Attractiveness The economic attractiveness of expanded transit service is highly dependent on the specific service changes proposed and the predicted level of new ridership. The individual transit authorities would need to determine the level of economic attractiveness for itself. Establishing strong support for public transit throughout the island will help to reduce the risk of enhanced service. Greenhouse Gas Reductions GHG emissions for a ridership of 35% are estimated to be on the order of 260 tonnes per year (1.1% of year 2000 island emissions).(page 25)
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TWG Policy Extracts Appendix 2b
Crippen Park Draft Management Plan
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TWG Policy Extracts Appendix 2b
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BIM Transportation Working Group: Phase 1 Ferry Marshalling Location Options – Report December 2006
Appendix 3
Matrix Development (Stage One):
Extracts from Core Transportation Documents
BCFC Terminal Master Plan (Draft), 2004 pages A1-4 Reid Crowther Road Strategy Planning Study, 1999 pages B1-9 McElhanney Snug Cove Traffic Management Plan, 2003 pages C1-12 Opus Hamilton Transportation Master Plan, 2006 pages D1-6 Additional Reports pages E1-2
Appendices TWG Matrix Stage One Transportation Documents Extracts Matrix Appendix 3
BC Ferries Snug Cove Terminal Master Plan (Draft) 2004 (T1 or CT1) Ferry Marshalling Options Government Road Loop Road South Shore Ability to meet ferry operating criteria for "If reservations were implemented on the route at some future date, a pre-ticketing area would be existing and potential capacities, such as required to accommodate the processing of reservations." (T1, p. 2) on time performance and maintaining "Corporate standards for signage should be followed schedule "If reservations were required on the routeat some future date, toll booths would be required to accommodate the processing of reservations." (T1, p.2) "Currently, we have designated holding spaces in an area defined by the Island council as a holding area on Government Road. The holding area is a designated zone and for the present time the Senior Master does consider additional holding area to be required. The overload numbers out of Snug are low and are held in the holding lane as above. This is likely due to vehicles balking from the end of the queue. I f and when we increase the lift off capacity then we will require additional holding area." (T1, p.2)
"Two lane unloading is required to meet the schedule during busy periods." (T1, p.4)
Separation of pedestrian traffic is essential to operations. Exiting vehicle flow must not be restricted by conflicting pedestrian movements. (T1, p.4)
"There is a requirement for a designated pick-up/drop-off area. The flow of vehicles and pedestrians in the pick-up/drop-off area must not conflict with the flow of vehicles loading and unloading from the ferry." (T1, p.4) "This [short-term taxi parking] is not an essential requirement provided that there is space available for short term parking in general. (This is considered a preferred but not essential requirement.)" (T1, p.4) "It is desirable to provide a designated area for school bus parking as well as the mini-transit buses that operate." (T1, p.4) "It is a requirement to queue foot-passengers in preparation for boarding to minimize in port time. This requires some type of covered waiting area. Any such waiting area or covered walkway must be designed in a way that will facilitate the simultaneous loading (or unloading) of foot-passengers and vehicles in order to minimize the in-port time...In order to minimize all of the potential safety concerns and delays due to passengers, waiting areas should be located as close to the berth as possible.... The MRTS indicates 90.31 m2 for a waiting room and 28.98 m3 for a waiting shelter." (T1, p.5)
BCFSCTMPdr Appendix 3 Page A 1 TWG Matrix Stage One Transportation Documents Extracts Matrix Appendix 3
BC Ferries Snug Cove Terminal Master Plan (Draft) 2004 (T1 or CT1) Ferry Marshalling Options Government Road Loop Road South Shore "There is no requirement for employee facilities. If reservations are introduced, some sort of tollbooth type structure will be required. Even if reservations are not introduced, the volume of traffic and the canfiguration of the terminal may make it essential to have a terminal attendant at some point in the future. For example, there may need to be a "remote" holding compound, or segregation of commercial traffic, or other complications that the ship's crew cannot monitor. I f so, then a toll booth-like shelter and employee parking... will be a requirement." (T1, p.6) "BC Ferries and Provincial Government representatives provided a verbal history of the Snug Cove land dedicated to BC Ferries in Schedule "1" of the head lease signed in July 2003. It was recognized that the legal descriptions contained in Schedule '1' were flawed and the Schedule would need to be amended to correct the mistakes. The terminal footprint was identified by BC Ferries and Land & Water B C." (T1b) "B C Ferries representatives outlined future plans for the Snug Cove terminal. These included a skywalk from the ferry to the Municipality's South Dock and a waiting room on District Lot 7974. It was indicated that a turn-around may be an option for consideration as part of the plan for the waiting room. B C Femes agreed to provide a timeline for these improvements. Discussion was held regarding future ferry traffic marshalling plans, including a Loop Road through Crippen Park and expanding the current use of Bowen Trunk Road. BC Ferries representatives indicated that moving the Snug Cove feny terminal to the south side of the Cove was not in their future plans." (T1b)
"New vessel attributes: -125 AEQ, expandable to approx. 170 AEQ with gallery decks (to be fitted later) -600 passengers, separate passenger boarding facilities -16 knots max speed; 14.5 knots service speed -For Rte 8: no more than 12 minute turnaround at Snug Cove -Double-ended; inter-operable with majority of other BCF minor routes -Simple machinery layout, low life cycle costs -4 year docking cycle; refit cycle TBD -Passenger amenities to address client expectations" (T1c, slide 5)
BCFSCTMPdr Appendix 3 Page A 2 TWG Matrix Stage One Transportation Documents Extracts Matrix Appendix 3
BC Ferries Snug Cove Terminal Master Plan (Draft) 2004 (T1 or CT1) Ferry Marshalling Options Government Road Loop Road South Shore "Possible Improvements at BCF Snug Cove Terminal New Waiting Room/ Washroom Building Sanitary sewer connection to municipal system Site landscaping Marine structures as required by vessel Segregated passenger boarding arrangement (from vehicles)
Notes: All improvements to take place within current BCF footprint (Block D and/or water lot). Firm Snug Cove municipal development plans needed before proceeding. All improvements subject to BCF capital approval process." (T1c, slide 6) "BCF Concerns If Rte 8 capacity is to improve, the larger vessel must keep present schedule. To maintain schedule, BCF needs: -2 lane loading and discharge at Snug Cove -Smooth and unimpeded traffic flow to/from vessel -Foot passenger and vehicles separated to allow load/discharge simultaneously -A larger vessel cannot function effectively on Route 8 with existing infrastructure at Snug Cove. -A larger vessel is unlikely for the Bowen Island route until shore side infrastructure is upgraded." (T1c, slide 7) "Additional Notes: -BCF policy prohibits capital investment on property not owned or controlled (e.g. long term lease) by BCF -The needed Snug Cove infrastructure improvements are on land not controlled by BCF. -BCF has engaged in shore side planning with Bowen Island Municipality for approx. 3 years with little progress -In order to have improvements complete by late 2006; detailed plans and project work must begin ASAP.
BCF requests the Bowen Island Municipality urgently decide on infrastructure improvements for Snug Cove and communicate the decision to BCF as soon as possible." (T1c, slide 8) Commuter needs
BCFSCTMPdr Appendix 3 Page A 3 TWG Matrix Stage One Transportation Documents Extracts Matrix Appendix 3
BC Ferries Snug Cove Terminal Master Plan (Draft) 2004 (T1 or CT1) Ferry Marshalling Options Government Road Loop Road South Shore Consistency with the principle of encouraging transportation alternatives
Cost According to 2004 costing estimates, the "fill option" will cost $10.5M while the "trestle option" will cost $25.1M. (T1a) Effect on meeting the Community Energy Plan Environmental impact Impact (economic and social) on Snug Cove as a village as described in the Snug Cove Village Plan Opportunity for flexible, phased implementation in response to demand growth Design options
BCFSCTMPdr Appendix 3 Page A 4 TWG Matrix Stage One Transportation Documents Extracts Matrix Appendix 3 Reid Crowther: Road Strategy Planning Study (1996) (T2 or CT2) Ferry Marshalling Options Government Road Loop Road South Shore Ability to meet ferry operating criteria for "It is generally acknowledged that the alignment of North Wharf is superior for ferry docking existing and potential capacities, such as than the current ferry dock. However, according to BC Ferries staff, BCFC "would not on time performance and maintaining compete with schedule the Bowen Island Community for the acquisition of the wharf and that the wharf is not A comprehensive improvement strategy for Snug Cove must include the following: Streamlining of existing and future ferry operation; Compatibility with future GVRD Surplus Lands development plans; Enhancement of minibus service; Attaining the community desire to enhance pedestrian activities; and Compatibility with future commercial development plans including on and off street parking. (T2, 5-5) Commuter needs "Given the potential development capacity of 1,500 lots, the long term population on Bowen Island could reach 7,000 persons. This is confirmed by figures released by GVRD Electoral Areas and the 1994 Park Study, Depending on future growth rates, the Island could reach its threshold within 15 to 20 years. What is unknown is the rate of growth of the seasonal population. The addition of seasonal population and its conversion to permanent residency may well accelerate the overall population growth and attain the threshold sooner than the 15 to 20 year horizon." (T2, p.2-9) "The current 44 percent of employed labour force who commute off-island holds the key to future transportation strategy for Bowen Island. A significant increase of commuting trips would result in the demand for additional ferry service. Strategic options would have to be made on the blend of passenger versus car carrying capacity." (T2, 3-1) "In the 1996 Census, individuals were asked to identify the mode of transport they used to commute between home and work. Those who used multiple modes of transportation were asked to identify the single mode used for most of the travel distance. For the Island's employed labour force, 76 percent travel to work by carftmck or van as drivers (65 percent) or as passengers (1 1 percent), 13 percent use public transit (from Horseshoe Bay to employment destinations) and 8 percent either walk or bicycle." (T2, 3-2)
"The rather compressed travel periods for the students are not unexpected. Given increasing population, additional schools may be provided on the Island, thereby reducing student travel on and off-island during the rush periods. However, the reduction of student travel will not increase the car carrying capacity of the ferries, since almost all students are foot passengers. This will have an implication on the provision of future ferry capacities and the treatment of docking facilities at Snug Cove." (T2, 3-3)
Crowther Appendix 3 Page B 1 TWG Matrix Stage One Transportation Documents Extracts Matrix Appendix 3 Reid Crowther: Road Strategy Planning Study (1996) (T2 or CT2) Ferry Marshalling Options Government Road Loop Road South Shore "The current ferry marshaling operation for foot passenger and vehicular movements is the single largest source of traffic delay in Snug Cove. The sequential movement of disembarking foot passenger/disembarking vehicles/boarding foot passengerhoarding vehicles is creating delay in the ferry operation which leads to slippage in the sailings schedule between Snug Cove and Horseshoe Bay. It is recognized that the separation of the foot passesngers from vehicuIar movements wouId greatly enhance the operational efficiency of the ferries and its docking operation." (T2, 3-21) "A comprehensive improvement strategy for Snug Cove must include the following: Streamlining of existing and hture ferry operation; Compatibility with future GVRD Surplus Lands development plans; Enhancement of minibus service; Attaining the community desire to enhance pedestrian activities; and Compatibility with future commercial development plans including on and off street parking." (T2, 5-5) ""Conduct detailed parking (both on- and off-street) demand and supply analysis to determine the land requirements for off-street parking facilities and parking charges that will support both TDM oriented commuting and local user needs, and compatible to the GVRD Surplus Land developmerlt plan." (T2, 5-7)"
Crowther Appendix 3 Page B 2 TWG Matrix Stage One Transportation Documents Extracts Matrix Appendix 3 Reid Crowther: Road Strategy Planning Study (1996) (T2 or CT2) Ferry Marshalling Options Government Road Loop Road South Shore "APCRec. I There is the greatest support and endorsement for dealing with ferry marshalling by modifying Government Rood. Thought should be given to considering simple, inexpenrive solutions, such as requiring vehicles yield to ferry disembarking traffic, that there is no pedestrian crossing while the ferry unloads, that parked cars not pull out infront of unloading ferry (raflc and rhaf lines be painted on Government Road to organize ferry marshalling. We also recommend that loading zones be created to eliminate traffic blockages caused by deliveries to merchants." (T2, Appendix C)
Consistency with the principle of Snug Cove Strategic Option Evaluation (T2, encouraging transportation alternatives 4-12, 4-14, 4-15)
"A comprehensive improvement strategy for Snug Cove must include the following: Streamlining of existing and future ferry operation; Compatibility with future GVRD Surplus Lands development plans; Enhancement of minibus service; Attaining the community desire to enhance pedestrian activities; and Compatibility with future commercial development plans including on and off street parking." (T2, 5-5)
Crowther Appendix 3 Page B 3 TWG Matrix Stage One Transportation Documents Extracts Matrix Appendix 3 Reid Crowther: Road Strategy Planning Study (1996) (T2 or CT2) Ferry Marshalling Options Government Road Loop Road South Shore "It is concluded that a loop road solution, by directing disembarking ferry vehicular traffic onto a newly constructed road parallel to Government Road between Cardena and Miller is not supportable given the recent GVRD Surplus Lands public consultation outcome and current community desire to retain Snug Cove's pedestrian friendly village land form. Further, the construction of a loop road in Snug Cove to accommodate additional 7 vehicular traffic in the area will undermine transportation demand management principles and alter irrevocably the character of the area." (T2, 5-4)
"Adopt a Transportation Demand Management (TDM) focus as the guiding principle for planning future increases of commuter travel on and off the Island and the future development of all transportation facilities and operation in Snug Cove. Develop TDM policies in anticipation of growth in travel demand and set realistic targets on ferry foot passenger volumes, vehicle occupancy for ferry traffic, and minibus ridership. Review, select and implement TDM measures that will encourage transportation modal shifts and assist the attainment of the adopted TDM targets. The measures should include pricing whereby differential charges will be imposed on commuter and local commercial parking in Snug Cove, varying ferry fares for single occupant and high occupancy vehicles, priority treztment for the minibus service and high occupancy vehicles such as priority loading and park-and-sail facilities in close proximity to the ferry terminal." (T2, 5-4)
Crowther Appendix 3 Page B 4 TWG Matrix Stage One Transportation Documents Extracts Matrix Appendix 3 Reid Crowther: Road Strategy Planning Study (1996) (T2 or CT2) Ferry Marshalling Options Government Road Loop Road South Shore "Review and select an operational scheme that will allow concurrent operation of disembarking foot passengers and off-loading vehicles at the ferry terminal. Strategic options for the ferry terminal operation are referenced in EXHIBIT 4.7. Prepare a short term improvement plan to enlarge the existing foot passenger marshalling area with improved amenities and shelter, and integrate the safe operation of minibus and school bus layover and turnaround in close proximity to the improved foot passenger area. Details of the improvement proposal are shown in EXHIBIT 4.6. Select the proposed Snug Cove Strategic Option 3: Hybrid with High Level of TDM with the following features: i) maintain one lane westbound to accommodate offloading ferry traffic, ii) impose and regulate shorter term on-street parking on both side Government Road (parking duration to be determined by parking utilization survey); iii) provide a higher-than-average level of minibus service, iv) optimize land assembly for off-street commuter parking; vi) institute pay parking for future offstreet commuter parking areas to encourage transit and non-vehicular modes of transportation and vii) construct improved and enlarged passenger marshalling facilities and provide minibus loading and turnaround at dockside. Details of Option 3 is referenced in EXHIBIT 4.8." (T2, 5-5) "Conduct detailed parking (both on- and off-street) demand and supply analysis to determine the land requirements for off-street parking facilities and parking charges that will support both TDM oriented commuting and local user needs, and compatible to the GVRD Surplus Land developmerlt plan." (T2, 5-7) Cost Snug Cove Strategic Option Evaluation (T2, 4-12, 4-14, 4-15) Effect on meeting the Community Energy Plan Environmental impact Impact (economic and social) on Snug Three concept drawings (T2, p.2-12) Cove as a village as described in the Snug Cove Village Plan
Crowther Appendix 3 Page B 5 TWG Matrix Stage One Transportation Documents Extracts Matrix Appendix 3 Reid Crowther: Road Strategy Planning Study (1996) (T2 or CT2) Ferry Marshalling Options Government Road Loop Road South Shore Snug Cove is the focal point of Bowen Island's community and commercial activities.
It is also the transportation hub of the Island. In both Upper and Lower Cove, a range
of land uses are currently in place including residential, commercial, water transport
and marina, civic, school, parking, police, ambulance, and park and open space. The
preservation of the area as the village centre was clearly identified by the Rowen
Island Local Trust Committee as a core community value. Virtually all ofthe current
planning efforts: GVRO Surplus Land, Wharf Divestiture, Draft Land Use Bylaw,
Pilot Transit Service and passenger-only ferries are connected with the use of Snug
Cove. Clearly, the future planning and maintaining of the village's development goals
and ideals are critical to the success of Bowen Island. (T2, 3-21) "Current estimates of daily vehicle volume on Government Road indicate traffic volumes of 1,200 vehicles per day. However, it is conceivable to see a range of 1,600-2,200 daily volume, particularly during the peak season. This section of roadway is atypical on the Island as it is the primary access route. Volumes on other classes of roadways would be significantly lower." (T2, 3-24) Snug Cove Strategic Option Evaluation (T2, 4-12, 4-14, 4-15) With the anticipated growth threshold of 7,000 residents and the influx of seasonal residents and increased visitors, it is concluded that major increase of road and ferry capacity will be needed within the longer-term planning horizon to accommodate the growth in travel demand. The growth of traveI demand on the Island will need to be monitored in light of the uncertainty of land use and the pace of development. Roadways and the feny marshalling related facilities in Snug Cove will have to be upgraded significantly in order to meet the supply-equal to-demand, approach to transportation planning. Further, the car-carrying capacity of the ferry service between Snug Cove and Horseshoe Bay and the parking and marshalling facilities will need to be increased in the long term." (T2, 5-1)
Crowther Appendix 3 Page B 6 TWG Matrix Stage One Transportation Documents Extracts Matrix Appendix 3 Reid Crowther: Road Strategy Planning Study (1996) (T2 or CT2) Ferry Marshalling Options Government Road Loop Road South Shore "A comprehensive improvement strategy for Snug Cove must include the following: Streamlining of existing and future ferry operation; Compatibility with future GVRD Surplus Lands development plans; Enhancement of minibus service; Attaining the community desire to enhance pedestrian activities; and Compatibility with future commercial development plans including on and off street parking." (T2, 5-5) "Further investigate the use of landscaping elements to achieve traffic calming and pedestrian enhancement in Snug Cove, e.g., tree planting and texture pavement at pedestrian and trail crossings. Review the feasibility of developing the parallel easement south of Government Road into a major pedestrian corridor as part of the overall development of Snug Cove." (T2 5-7)
"SCG Rec. 2 The parking space to commercial square footage ratio requirement for Snug Cove be cut in half Erom the present standards. Residential parking should remain at 1 space per residential unit. Eliminate the requirement that parking be supplied within 300 feet of a business and instead must be provided within the Cove Planning Area perimeter. APC Rec 2 We recommend rhot rhis be implemented." (T2, Appendix C) "SCG Rec. 3 Parking for both commercial, commuter and park visitor use should be developed behind the Old General Store. Funher parking considerations in Snug Cove are also recommended: a) Parking space be kept for public use behind thc RCMP rcsidcncc (enrrance/exit on Government Road and Miller Road); and in the area between [he School and Miiler Road; in the area specified in the existing plan, east of the General Store (by the ball field); and in the triangle area across from the school by Mount Gardner Road; in the area specified in the existing plan, east of he General Store (by the ball field); and in the triangle area across from the school by Moua Gardner Road. b) A commuter parking lot of about 60 spaces behind the Old General Store. c) The committee recommends consideration of a park and ride system in distant parts of the island to case automobile congestion in the cove." (T2, Appendix C)
Crowther Appendix 3 Page B 7 TWG Matrix Stage One Transportation Documents Extracts Matrix Appendix 3 Reid Crowther: Road Strategy Planning Study (1996) (T2 or CT2) Ferry Marshalling Options Government Road Loop Road South Shore "APC Rec. 3 There should be a sixty space, or two thirty space londrcaped poy parking lou behind the Old General Store and a firty space vis~rallys hielded pay parking lot north of the boll field The two hour parking rule on Government Rood should be enforced once /has lo& ore in ploce. Parking space behind the RCMP 22 and between the school and Miller Road should be subordinate to whatever facilities eventually occupy those fan& The triangular area across/rom the school is too steep /or a parking lot and should be kept as green space. Road planning for the cove should include a strategically located drop off spot (kiss and ride)/w commuters. AN of the changes to parking in the cove should be implemented in conjunction with the implementation of a comprehensive transportation plan. This recommendation is not unanimously agreed upon with the A.P.C.. Since there is immediate need for extra parking some of us feel that extra parking should be created immediately as the beginning of the comprehensive traffic plan." (T2, Appendix C) "PCG Rec. 4 The South side easement running parallel to Government Road. behind the existing commercial buildings be developed as a pedestrian-oriented single Iane for use as a limited vehicle access to lots on the South side of Government Road with enttance from the parking lot near the ball park. Vehicle turn-around could be achieved by a loop road through the cottages area. APC Rec. 4 There is vehement opposition to a loop road through the cottage area A pedestrian oriented single lane for use as a limited service vehicle access to the lot on the south side of Govement Road is acceptable, subject to input from the Heritage Committee. Access to the South end of these lots and relocating two cottages would create a possibility of a pedestrian oriented village centre in this area." (T2, Appendix C)
"SCG Rcc. 9 Implementation of these recommendations and cove development should not create barriers to the possible future need to move the ferry terminal within the cove. APC Rec. 9 This recommendation is accepted, though BC Ferries has stated tho1 moving the ferty terminal to the South side ofthe cove is completely, irrevocably and terminally a non starter." (T2, Appendix C)
Crowther Appendix 3 Page B 8 TWG Matrix Stage One Transportation Documents Extracts Matrix Appendix 3 Reid Crowther: Road Strategy Planning Study (1996) (T2 or CT2) Ferry Marshalling Options Government Road Loop Road South Shore Opportunity for flexible, phased SCG Rec. 1 (Snug Cove Advisory Group implementation in response to demand Recommendations (SCG) growth That planning for ferry marshalling/disembarking should focus on modifications to Government Road with alloned right of way reserved for a bypass route for future development as required. Bypass route construction may be premature for community needs at this time, however, such a development may become a necessary traffic relief for the cove in the future. Development in the cove, including the location of the proposed heritage cottages should proceed in a manner that does not preclude a future bypass installation. (T2, Appendix C) Design options Exhibit 4.5 (T2, 4-12) Exhibit 4.8 (T2, 4-14)
Crowther Appendix 3 Page B 9 TWG Matrix Stage One Transportation Documents Extracts Matrix Appendix 3 McElhanney: Snug Cove Traffic Management Plan (2003) (T3 or CT3) Ferry Marshalling Options Government Road Loop Road South Shore
Ability to meet ferry operating criteria for "To ensure on-time performance, two loading and two unloading lanes would be preferred existing and potential capacities, such as on Government Road. In addition, BC Ferries has indicated that removal of the speed on time performance and maintaining humps in the unloading direction would facilitate discharge flow. schedule BC Ferries has also indicated their desire to improve the existing pedestrian holding area, "On-time ferry performance is a key attribute that BC Ferries wishes to protect. On-time performance is greatly influenced by the number of loading and unloading lanes. Considering traffic growth and the future introduction of larger vessels carrying more vehicles, BC Ferries’ and the Municipality’s preference is to have two loading / unloading lanes on Government Road. Two through lanes in each direction are not required for local traffic flow, since even with a doubling of population on Bowen Island, traffic may increase from 100-150 vph to about 200-250 vph, which is an acceptable level with one lane in each direction. The need for two lanes is a function of the ferry discharge surges, which are projected to increase from the current 50-100 vehicles (in approximately 10 min.) to approximately 125-175 vehicles (based on proposed future ferry capacity)." (T3, 4-2)
"BC Ferries initially had some concern with the compatibility of their pedestrian landing structures with a north dock configuration, but later confirmed that a Concept E scenario would be feasible." (T3, 5-2)
McElhanney Appendix 3 Page C 1 TWG Matrix Stage One Transportation Documents Extracts Matrix Appendix 3 McElhanney: Snug Cove Traffic Management Plan (2003) (T3 or CT3) Ferry Marshalling Options Government Road Loop Road South Shore
"Upon review with local agencies and stakeholders, Concept E was selected as best meeting the local objectives, mostly on the strength of several specific characteristics, including: • Use of an expanded north dock to accommodate enhanced pedestrian facilities and pick-up / drop-off operations. • Construction of roundabouts at the Miller / Dorman Road and Cardena Drive intersections to improve traffic circulation on Government Road. • Increased ferry queue storage, generally separated from local traffic operations with landscaped median strips. • Sufficient loading and unloading capacity (two loading / unloading lanes) to accommodate ferry traffic without compromising ferry on-time performance. However, some of the design features shown in Concept E raised issues that are yet to be resolved, including the optimal cross- sectional characteristics and provision for long-term parking. Concept E issues to be resolved include: The Government Road cross-section shown on the Concept E drawing includes the following features: • A short-term parking lane on the south side o "BC Ferries still finds challenges with the north dock option (Concept E). Overall, there are aspects of each concept that are attractive to both BC Ferries and the Municipality, but BC Ferries cannot endorse any one concept at this time. It is BC Ferries’ intent to undertake further study to examine additional options that provide greater operational efficiencies." (T3, 6-4)
McElhanney Appendix 3 Page C 2 TWG Matrix Stage One Transportation Documents Extracts Matrix Appendix 3 McElhanney: Snug Cove Traffic Management Plan (2003) (T3 or CT3) Ferry Marshalling Options Government Road Loop Road South Shore
Commuter needs "Development of a new pick-up / drop-off facility on Block D (south side of Government Road). This property is owned by BC Ferries, and they have indicated a desire to construct a new washroom and pedestrian waiting facility in Block D. Unfortunately, Block D alone is not large enough to accommodate all pick-up / drop-off operations." (T3, 4-3)
"Design of the pick-up / drop-off area should be friendly to transit and school bus use, taxis and to physically challenged users. The preference would be to locate the pick-up / drop-off area as close as possible to the terminal." (T3, 4-4) "Sidewalk widths should be generous enough to accommodate relatively high numbers of pedestrians. To eliminate pedestrian conflicts on Government Road, overhead pedestrian crossings may need to be considered, as well as protected open spaces, large enough to accommodate large numbers of pedestrians waiting for ferries. Sidewalks should be constructed on both sides of Government Road, east of Cardena Drive." (T3, 4-4)
"A parking utilization survey conducted in 2001 by Union Steamship Marina identified the existing demand for long-term parking stalls to be approximately 120 stalls. Since the ultimate population of Bowen Island is projected to roughly double, it can logically be concluded that 240 stalls would satisfy the long-term future demand for long-term parking stalls. As some of the options being developed exclude provision of long-term parking along the north side of Government Road, identifying other potential areas to satisfy long-term parking needs is critical. Opportunities to provide off-street long-term parking areas are limited. In addition to a couple of parking pockets available on Cardena Road, several potential alternatives were identified: 1. Lot 12, at the northeast corner of Government Road / Cardena Drive, was originally thought to be available for purchase. It is unlikely that a pay parking structure located on this property would be received favourably. As an at-grade parking facility, only about 30 stalls can be accommodated on Lot 12. 2. At-grade parking could be provided within the surplus lands, but this would require GVRD 3. There are possible plans to develop the existing Police Department property off Miller Roa
McElhanney Appendix 3 Page C 3 TWG Matrix Stage One Transportation Documents Extracts Matrix Appendix 3 McElhanney: Snug Cove Traffic Management Plan (2003) (T3 or CT3) Ferry Marshalling Options Government Road Loop Road South Shore
"The concept drawings and evaluation were presented to the stakeholders at Stakeholder Meeting #2, held at Bowen Island Municipal Hall on 17 September 2002. Many of the stakeholders and agencies listed in Section 4.1 were present at this meeting. Minutes of this meeting are attached in Appendix C. Further to discussion and evaluation from the perspective of the interested agencies and stakeholders, strong support was expressed for Concept E, which was the only concept to show the pick-up / drop-off area and related pedestrian facilities on an expanded north dock, thus consolidating transit, taxi and pick- up / drop-off needs into one general area. The construction of roundabouts at both the intersections of Cardena Drive and Miller / Dorman Road was also viewed favourably. Some design elements, such as the long- term parking facility, will require further review. Also, there was some support for Concept D “Loop Road." (T3, 5-2)
McElhanney Appendix 3 Page C 4 TWG Matrix Stage One Transportation Documents Extracts Matrix Appendix 3 McElhanney: Snug Cove Traffic Management Plan (2003) (T3 or CT3) Ferry Marshalling Options Government Road Loop Road South Shore
"The pick-up / drop-off area shown on the north dock in Concept E accommodates two transit buses, two taxi stalls, two handicapped stalls and nine to ten pick-up / drop-off stalls. School buses would continue to load / unload students on Cardena Drive, thus requiring that large numbers of students walk back and forth along the north sidewalk on Government Road, and potentially along Government Road. It would be preferable to include school bus parking within the north dock area, thus containing all high occupancy and special purposes vehicles within the same area, close to the ferry boarding facilities. Exhibit 9 illustrates an alternative pick-up / drop-off area design in which school buses are included in the north dock. Under this scenario, due to space limitations in the north dock, pick-ups could be performed along Cardena Drive, where ample short-term curbside parking can be provided. As there is no formal turnaround opportunity along Cardena Drive for pick-up vehicles to use, ideally another roundabout would be constructed at the Cardena Drive intersection,
"Consolidating transit, school bus, taxi and pick-up / drop-off needs into one general area on the north dock is considered one of the strongest features characterized by Concept E. Further analysis is required to verify user needs and to optimize the configuration of this area." (T3, 6-2)
McElhanney Appendix 3 Page C 5 TWG Matrix Stage One Transportation Documents Extracts Matrix Appendix 3 McElhanney: Snug Cove Traffic Management Plan (2003) (T3 or CT3) Ferry Marshalling Options Government Road Loop Road South Shore
Consistency with the principle of "In the interest of Traffic Demand Management (TDM), the stakeholders agreed that the encouraging transportation alternatives following initiatives should be pursued: • Strive to provide alternative transportation choices; • Additional transit service is already proposed; • Larger and more accessible pick-up / drop-off facilities to ferry; • Good pedestrian access; and • Introduce pay parking for long-term parking. These initiatives will reduce demand for long-term parking. It is recommended that a minimum provision of approximately 150 to 180 stalls be considered for future long-term parking needs." (T3, 4-6) "Off-street long-term parking supply requires further examination. Surveys suggest that as many as 240 long-term stalls are required for build-out conditions on Bowen Island. Transportation Demand Management initiatives related to increased transit operations and pay parking facilities are anticipated to reduce demand for long-term parking requirements, but at least 150 to 180 long-term stalls are recommended." (T3, 6-3)
Cost "Rory Kulmala presented three sketches (attached) drafted by McElhanney Consulting on behalf of BCFS: a) Concept F2 - Loop Road option through Crippen Park - 3 to 4 lanes wide, cost estimate $2.4 Million b) Concept G - Government Road parking lot option - 9 lanes wide, cost estimate $2 million c) Concept Fl - Government Road status quo option . Concept F2 and G were discussed and BCFS provided a cost estimate to develop these options. Concept F2 was the option preferred by BCFS. The sketches did not come with any background information and Michael Rosen asked that BCFS provide an analysis of the sketches so that the Municipality could get an indication as to how BCFS got to this point." (T3, 109)
McElhanney Appendix 3 Page C 6 TWG Matrix Stage One Transportation Documents Extracts Matrix Appendix 3 McElhanney: Snug Cove Traffic Management Plan (2003) (T3 or CT3) Ferry Marshalling Options Government Road Loop Road South Shore
"Trafford Taylor indicated that the new company will not be contributing financially to any capital improvements to ferry marshalling on lands that are not held by BCFS and that in future any infrastructure costs would have to be borne by Bowen Island Municipality. It would be up to the Municipality to lobby the BCFS Commissioner and the Provincial Government for any B C Ferry Services contribution to funding for ferry marshalling improvements. Note: In past meetings with B C Ferries Corporation representatives the discussion has always been one of cost sharing of infrastructure improvements for ferry marshalling areas. In the past BCFC has contributed to infrastructure improvements in other municipalities for municipal owned properfies used by BCFC for ferry marshalling (e.g. Powell River)." (T3, 110) BCFS Option Development - Concept G (T3, BCFS Option Development - Concept F2 118-120) (T3, 114-116) "Each of the concepts was evaluated in terms of its advantages and disadvantages as described in Tables 4 to 8. The evaluation includes order of magnitude construction cost estimates developed for each concept. The cost estimates include property acquisition costs, but do not include: • Ferry terminal upgrades related to dolphins and new pedestrian ramp connections, as these costs were not known at the time. Terminal upgrade costs may be significant, especially for Concept E. • No widening of the sidewalk on the south side of Government Road (west of Cardena). • The pay parking structure off Miller Road, as such a structure would involve pay parking, and thus would be self-financing. • Potential environmental impact mitigation measures. • “Soft costs” for engineering, survey, construction supervision and contract administration." (T3, 5-1)
"Construction Cost Estimate Summaries Concept Cost Estimate ($ millions) A $1.4M to $1.9M B $2.5M to $3.0M C $2.0M to $2.5M D $2.8M to $3.3M E $4.0M to $4.5M An overall summary comparison of each concept’s key features is shown in Table 10." (T3, 5-6) "Also, there was some support for Concept D “Loop Road”. (T3, 5-3)
McElhanney Appendix 3 Page C 7 TWG Matrix Stage One Transportation Documents Extracts Matrix Appendix 3 McElhanney: Snug Cove Traffic Management Plan (2003) (T3 or CT3) Ferry Marshalling Options Government Road Loop Road South Shore
"To minimize costs, the typical cross-section west of Cardena Drive does not include widening the sidewalk along the south side of Government Road. There are many utility poles and other obstructions restricting the width of the south sidewalk." (T3, 5-4)
"The Concept E construction cost estimate is in the order of $4.0 M to $4.5 M. Option E will impact a number of properties, including: • ± 8.0 m strip from the north side of Government Road (Crippen Regional Park); • ± 6.0 m strip from the Union Steamship Co. property; • Minor impact on Union Steamship Marina at Cardena Drive (to accommodate roundabout); • Corner cut to Lot 12; and • Corner cuts at Government / Dorman / Miller intersection (to accommodate roundabout). The construction cost estimate includes property acquisition costs, but does not include: • Soft costs (engineering, construction supervision, contract administration, survey, etc.); • Terminal upgrade costs for new dolphins and pedestrian ramp connections; • Widening of the sidewalk on the south side of Government Road, west of Cardena Drive; • Long-term parking in a potential pay parking structure off Miller Road, as such a structure would involve pay parking, and thus would be self-financing; and • Potential environmental impact mitigation measures." (T3, 6-3)
McElhanney Appendix 3 Page C 8 TWG Matrix Stage One Transportation Documents Extracts Matrix Appendix 3 McElhanney: Snug Cove Traffic Management Plan (2003) (T3 or CT3) Ferry Marshalling Options Government Road Loop Road South Shore
"Ferry Terminal Upgrade BC Ferries has indicated that significant upgrades to the ferry terminal are required for new dolphins, and to provide a pedestrian ramp connection from the ferry to the north dock. Project Financing As Concept E is the most expensive option (>$4.0 M), the next hurdle will involve finding ways to come up with project financing. Construction staging scenarios may be required to achieve funding strategies. BC Ferries has indicated a commitment to only pay for terminal costs associated with ramp to dock connections and dolphin upgrades. Construction costs for Government Road widening, long-term parking structures and north dock improvements would be borne by Bowen Island Municipality." (T3, 6-4)
Effect on meeting the Community Energy Plan
McElhanney Appendix 3 Page C 9 TWG Matrix Stage One Transportation Documents Extracts Matrix Appendix 3 McElhanney: Snug Cove Traffic Management Plan (2003) (T3 or CT3) Ferry Marshalling Options Government Road Loop Road South Shore
Environmental impact "To minimize the impact on Government Road, there was debate amongst stakeholders regarding the development of a parallel road system to the north of Government Road, within the GVRD Park lands, from Cardena Drive to Miller Road. This concept has been discussed in the past, and many stakeholders argued that it should remain on the table. The GVRD parklands have been found to contain heron nesting sites; however, it is possible that GVRD Parks would view such an option favourably, and the possibility of such an alternative remains feasible in the long term. It is likely that improvement options requiring a minor widening of Government Road may be more palatable to the GVRD, at least in the short term." (T3, 4- 6) "To lessen the impact on the GVRD parklands, it may be desirable to reduce westbound laning to one lane west of Cardena Drive. As a compromise, the second westbound lane can be designed to merge into one lane just west of the Old General Store, recognizing that such a merge would increase unloading times." (T3, 5-4)
McElhanney Appendix 3 Page C 10 TWG Matrix Stage One Transportation Documents Extracts Matrix Appendix 3 McElhanney: Snug Cove Traffic Management Plan (2003) (T3 or CT3) Ferry Marshalling Options Government Road Loop Road South Shore
Impact (economic and social) on Snug "Improvement options that avoid additional Cove as a village as described in the Snug road widening along Government Road Cove Village Plan would obviously be preferred, as this condition would result in no impact on the GVRD surplus lands and other properties, and would not contribute to the adverse aesthetics associated with wider pavement structures. At the same time, there is a recognized need to address road capacity and parking needs, and it was generally perceived that a landscaped median along Government Road would serve to soften the visual impact of the corridor. This median would, ironically, require additional road widening." (T3, 3-4)
"West of Cardena Drive, options requiring road widening assumed widening on the north side of Government Road only because widening on the south side is restricted by built conditions and would incur significantly greater costs to reconstruct. However, there is some concern regarding the south side of Government Road, as there are many utility poles and other obstructions restricting the available sidewalk width. Difficult construction is anticipated on the north side of Government Road, east of Cardena Drive, to replace an existing retaining wall. Construction easements across Lots 12-14 will be required. Issues related to this work may include conservation of trees, reinstatement of vegetation and aesthetics of the wall. Trade-offs in lane width may be required." (T3, 4-3)
McElhanney Appendix 3 Page C 11 TWG Matrix Stage One Transportation Documents Extracts Matrix Appendix 3 McElhanney: Snug Cove Traffic Management Plan (2003) (T3 or CT3) Ferry Marshalling Options Government Road Loop Road South Shore
"Various forms of intersection treatment on Government Road at Cardena Drive and Dorman / Miller were considered. The general consensus amongst stakeholders appeared to favour roundabouts at both these intersections, thus permitting an easy turnaround. The provision of good U-turn opportunities on Government Road are an important feature to the community, and from a traffic flow perspective, due the lack of road continuity and connectivity at the east end of Government Road. Furthermore, introduction of a landscaped median would require that all traffic exiting the commercial properties on the south side of Government Road perform U-turns at Cardena Drive." (T3, 4-3)
"Expansion of the existing north dock pick-up / drop-off area will probably require complete reconstruction of the north dock, as well as resolution of dock to ferry ramp connection details." (T3, 4-4) "Use of Lot 12 (NE corner of Government Road /Cardena Drive) and/or on-street parking on Cardena Drive." (T3, 4-4) "Roundabouts at Cardena Drive and Miller / Dorman Road will facilitate traffic circulation along Government Road by permitting turnaround opportunities. Signing and/or other controls will require further investigation to ensure safety and priority to ferry traffic during loading and unloading." (T3, 6-2)
Opportunity for flexible, phased implementation in response to demand growth Design options BCFS Option Development - Concept G BCFS Option Development - Concept F2 (McEllhaney, 117); McEllhaney SC (Add.) G (McEllhaney, 113); McEllhaney SC (Add.) F2; McEllhaney SC Traffic Concept D(Table 7)
McElhanney Appendix 3 Page C 12 TWG Matrix Stage One Transportation Documents Extracts Matrix Appendix 3 McElhanney: Snug Cove Traffic Management Plan (2003) (T3 or CT3) Ferry Marshalling Options Government Road Loop Road South Shore
BCFS Option Development - Concept F1 (McEllhaney, 121); McEllhaney SC (Add.) F1; McEllhaney SC Traffic Concepts A (Table 4), B(Table 5), C(Table 6), E (Table 8)
Note: Table 10 provides summary of key elements of each concept in McEllhaney report.
McElhanney Appendix 3 Page C 13 TWG Matrix Stage One Transportation Documents Extracts Matrix Appendix 3 Opus Hamilton: Bowen Island Transportation Master Plan (2006) (T4 or CT4) Ferry Marshalling Options Government Road Loop Road South Shore
Ability to meet ferry "In discussions with the Municipality's Ferry Advisory Committee, it was determined that, notwithstanding any other operating criteria for existing water transport options such as a proposed passenger ferry, the large ferry with 160-vehicle capacity is the ultimate and potential capacities, capacity. The Ferry Advisory Committee has indicated that the 160 vehicle capacity ferry will be unlikely supported [sic] such as on time performance by the Municipality. The Committee has indicated that the planning of a marshalling area for a 120-vehicle capacity ferry and maintaining schedule should be considered. (Technical Memo 2, p.6)
Table 4.1 - Marshalling Area Requirements for 120-vehicle capacity ferry. (Technical Memo 2, p. 6) Commuter needs "The 2001 Census estimated a population of 2,960 and projected that population would grow to 3,340 by 2004. If this growth rate is assumed to be linear, the population projection for 2021 is approximately 4,800… A 2003 report by Bruce Howlett (the Howlett Study)...indicated that the adjusted population projection for 2021 is between 5,600 and 7,000, significantly higher than Census projections. The OCP does not make population or build-out projections for a specific horizon year, buth rather cites a "long-term" projection of 6,500. The OCP projection is approximately mid-way between the projections provided by the Howlett Study. [sic] The Transportation Master Plan therefore assumes the planning horizon year to be 2021 with a polution between 5,600 and 7,000. (T4, p.14-15)
"Using typical trip generation rates for both rural and urban communities, the a [sic] fully developed population of 6,500 and assuming the average capacity of 1,200 vehicles per hour per lane, Grafton Road will be sufficent to accommodate IF all developments (100 percent) are located on one end of the Island." (T4, p.15)
"The 2001 census data shows that about one-third of the Island residents work, and about two-thirds of the residents who work travel to Horseshoe Bay (2001 Census). The growth of commuters using the ferry is expected to continue." (T4, p.22)
Opus Hamilton Appendix 3 Page D 1 TWG Matrix Stage One Transportation Documents Extracts Matrix Appendix 3 Opus Hamilton: Bowen Island Transportation Master Plan (2006) (T4 or CT4) Ferry Marshalling Options Government Road Loop Road South Shore
The year 2021 water transport objectives are: to povide the necessary ground side infrastructure at Snug Cove to support the water transport needs to and from the island; to provide water transport options other than BC Ferries, suc as a a passenger ferry in order to reduce vehicle dependency on ferries, to reduce the share of single occupancy vehicles on the ferry by 10 percent by the year 2021 by proviing incentives to multi-passenger vehicles, pedestrians and bicycles; to support a ferry size not larger than 120 passenger-vehicle-equivalents." (T4, p.23)
"Council may adopt the following policies in support of the TMP:…support a larger ferry for Bowen Island with a maximum capacity of 120 passenger-vehicle-equivalents." (T4, p.23) "The objectives for 2021 are: to reduce single occupancy vehicles on the ferry by 10 percent; to increase on-Island walk and bicycle trips from 5 to 6 percent of mode share; to increase transit ridership on the ferry from 14 to 20 percent of mode share by supporting more transit-friendly policies in regards to ferry travel; to reduce the need to commute by ferry to work and shop off the Island." (T4, p.36)
"Currently there are 49 on-street parking spaces on Governmetn Road and Cardena Drive. A total of 50 on-street parking spaces should be maintained and 10 parking spaces whould be planned for ferry passengers. If a 120-vehicle ferry is used, the parking for ferry passengers should be 150 to 180 spaces. Figure 4.2 shows the potential areas where parking could be provided. The parking requirements support The Snug Cove Village Plan parking policies." Table 4.2 - Parking Usage Summary (Technical Memo 2, p. 8)
All of the options achive the following goals to a similar degree (level of achievement noted in parentheses): Provide long-term parking for commuters in Snug Cove (full achievement)." (Technical Memo 2, p. 15)
Opus Hamilton Appendix 3 Page D 2 TWG Matrix Stage One Transportation Documents Extracts Matrix Appendix 3 Opus Hamilton: Bowen Island Transportation Master Plan (2006) (T4 or CT4) Ferry Marshalling Options Government Road Loop Road South Shore
Consistency with the "The year 2021 water transport objectives are: To reduce principle of encouraging the share of single occupancy vehicles on the ferry by 10 transportation alternatives percent by the year 2021 by providing incentives to multi- passenger vehicles, pedestrians and bicycles." (T4, p.23)
"Council may adopt the following policies in support of the TMP: 1. Encourgae the growth of local business opportunities on the Island to reduce the need to commute by ferry; 2. Support an express bus which travels from Snug Cove on the ferry directly to downtown Vancouver with no transfers thereby making transit a more attractive option for ferry commuting;... 4. Incentives for ridesharing and walk-on passengers such as priority loading for high occupancy vehicles; 5. Parking at the terminal for ferry commuters; 6. Bicycle racks and storage facilities at the ferry terminal; 7. Improvements to the foot passenger waiting area. (T4, p.37)
"…It should also be noted that about 71 percent of vehicles on the ferry carry only one person. Strategie to improve ferry service should therefore also consider travel demand management to reduce single occupancy vehicles as an alternative to increasing the ferry capacity." (Technical Memo 1, p. 16) "Bicycle parking and pedestrian path requirements will be incorporated in the ferry marshalling area plan concepts 9see also ferry marshalling plan concepts in Section 4.0 of this report). (Technical Memo 2, p. 3) All of the options achive the following goals to a similar degree (level of achievement noted in parentheses): Provide better pick-up /drop-off location for foot passengers (partial achievement); Provide better pick-up/drop-off location for foot passengers (partial achievement); Priority for foot passengers and transit users (partial achievement)." (Technical Memo 2, p. 15)
Opus Hamilton Appendix 3 Page D 3 TWG Matrix Stage One Transportation Documents Extracts Matrix Appendix 3 Opus Hamilton: Bowen Island Transportation Master Plan (2006) (T4 or CT4) Ferry Marshalling Options Government Road Loop Road South Shore
Cost "Council may adopt the following policies in support of the TMP: 1. Prepare and implement Asset Management Plans to prioritize maintenanceand capital investments in transportation infrastructure. Establish a priority list for capital investments in transportation infrastructure, including... the ferry marshalling area and the Village; 2. Establish an on-going Five-Year Budget based on the Asset Management Plans; 3. Establish a Development Cost Charges and/or Levies on new developments to provide funding for the renew of transportation facilities; 4. As part of project evaluation, include the "private public partnership" option for the finance, design, construction and operation; 5. Adopt user pay policies; 6. To partner with senior governments and crown corporations for their contribution in the improvement of transportation infrastructures on the Island; 7. Consider property tax as an option of funding; 8. Support the exchange and sale of land, as well as density bonusing as an option for the funding and contribution towards new and replacement infrastructure. (T4, p.40) "Class "D" estimates are based on needs and feasibility design output with a variance of plus 100 percent of final construction costs. The estimates exclude the ferry waiting room, and areas for long-term parkers other than those show [sic] in the concept plans. The construction costs for all but the "Enhanced Village Concept" are similar, because they involve the relocation of the library and extensive construction in Crippen Regional Park. The Enhanced Village Concept is the only one that does not, and therefore costs the least." (Technical Memo 2, p. 14) Table 4.3. 2006 Class "D" Construction Cost Estimates for Ferry Marshalling Options. Plaza, Village and Shared Village Concept - $4 million, Enhanced Village Concept - $3 million.
Opus Hamilton Appendix 3 Page D 4 TWG Matrix Stage One Transportation Documents Extracts Matrix Appendix 3 Opus Hamilton: Bowen Island Transportation Master Plan (2006) (T4 or CT4) Ferry Marshalling Options Government Road Loop Road South Shore
"The Class "D" estimate for the construction cost for this plan [the Snug Cove Marshalling Concept] is $4 million. This estimate must be verified by a functional design when more detailed topographic and design requirements are established." (Technical Memo 2, p.18)
Effect on meeting the Community Energy Plan Environmental impact Council may adopt the following policies in support of the TMP:…support energy conservation and environmentally- friendly measures in water transport." (T4, p.23)
Impact (economic and social) Ranked criteria for ferry marshalling from Bowen Island on Snug Cove as a village as Open House (T4, slide 16) described in the Snug Cove Village Plan "The year 2021 water transport objectives are: To provide the necessary ground side infrastructure at Snug Cove to support the water transport needs to and from the Island." (T4, p.23) "The objectives for Snug Cove and the ferry marshalling area are:To immediately provide an improved ferry marshalling for 200 passenger-vehicle-equivalents; the improved marshalling area should include an efficient ferry passenger drop-off and pick-up area, an efficient transit bus and taxi drop-off and pick-up area, efficient pedestrian and bicycle access between the ferry marshalling area and the Village, on-street parking spaces for Snug Cove Village merchants, 100 parking spaces for ferry commuters by the year 2010, point-of-arrival gateway features in the Village and ferry marshalling area to enhance the Village, a sidewalk network in the Village connecting the commercial, ferry marshalling, recreation, residential and park areas, the visual and physical separation between the ferry marshalling area from the Village commercial area; to enhance the characteristics of the Village; to provide a lane south of the commercial properties for better access and circulation by the year 2010." (T4, p.25)
Opus Hamilton Appendix 3 Page D 5 TWG Matrix Stage One Transportation Documents Extracts Matrix Appendix 3 Opus Hamilton: Bowen Island Transportation Master Plan (2006) (T4 or CT4) Ferry Marshalling Options Government Road Loop Road South Shore
"Council may adopt the following policies in support of the TMP:…4. Provide pay parking spaces close to the ferry terminal for commuters, 8. Adopt implementation plans to encourage pedestrian and walk modes by providing and maintaining bicycle racks in the Village and at the ferry terminal,...." (T4, p.26) "All of the options achive the following goals to a similar degree (level of achievement noted in parentheses): Maintain on-street parking in Snug Cove (full achievement); Maintain good access to businesses in Snug Cove (full achievement)." (Technical Memo 2, p. 15)
"[The Snug Cove Marshalling Concept] will improve the two criteria which the Enhanced Village Concept was found deficient: Remove ferry traffic from the Government Road - Ferry marshalling traffic is removed from the Governament Road by reserving it for Village traffic with the creating a row of commercial buildings in the boulevard; and separate ferry traffic from the Village - The new row of commerical buildings will act as a buffet between ferry and Village traffic. [sic throughout] Opportunity for flexible, T4 phased implementation in response to demand growth
Design options Concept Plan (T4, p.31-32) Snug Cove Marshalling Concept (T4, p.29-30) Snug Cove Government Road Cross Section (T4, p.33-34)
Evaluation of four design options (Technical Memo 2, p. 15- 16) Four concepts: Plaza, Village, Shared Village & Enhanced Village (Technical Memo 2, Appendix A)
Opus Hamilton Appendix 3 Page D 6 TWG Matrix Stage One Transportation Documents Extracts Matrix Appendix 3 Municipal Insurance Assn (2004) Urban Systems (2004) Cowan Point Transportation Review (1999) (T5 or CT5) (T6 or CT6) (T7 or CT7) Ferry Marshalling Options Government Road Government Road Government Road Ability to meet ferry operating criteria for existing and potential capacities, such as on time performance and maintaining schedule Commuter needs "It is important to note that as the ""In order to evaluate the design "Trans-Link commenced operating a bus Municipality grows, both as a desirable alternatives the following criteria have service on Bowen Island on May 3 l", residential area and as a tourist day been established. The 1999. destination, this growth will further criteria have been divided into two Two 20-seat buses are used, one serving complicate the marshalling area and categories: required criteria and desirable areas to the southwest of the island, the long term capital improvements will be criteria. Required other serving the northeast, with the necessary." (T5, 9) criteria must be addressed by a proposed service geared primarily to ferry solution for it to be considered further commuters, while desirable and operating only on weekdays in the criteria will be used to compare the peak periods. Buses are equipped to carry various options available. wheelchairs and bicycles. Required Criteria with a high of 162 passengers. Ridership o Marshalling Capacity - the proposed is higher in the evening peaks than in the solution must increase the amount of ferry morning. There are about 50 to 55 daily marshalling space commuters using the bus, and the o Safety - the proposed solution must not operator observed that there has been a create an unsafe situation for motorists ' ' droiip in kiss & ride trips to the ferry, and . about one third fewer cars are parked - o Property Protection - the proposed Government Street." (T7, 10) solution must not cause a significant increase in risk to property damage from the currem situation C Desirable Criteria o Cost - the proposed solution should be provided at the lowest cost possible o Safety - the proposed solution should provide to the greatest extent possible a safe environment for motorists travelling on the road, those waiting for the ferry, and pedestrians o Environmental impact - the proposed
Additional Reports Appendix 3 Page E 1 TWG Matrix Stage One Transportation Documents Extracts Matrix Appendix 3 Municipal Insurance Assn (2004) Urban Systems (2004) Cowan Point Transportation Review (1999) (T5 or CT5) (T6 or CT6) (T7 or CT7) Ferry Marshalling Options Government Road Government Road Government Road Consistency with the principle of encouraging transportation alternatives Cost Effect on meeting the Community Energy Plan Environmental impact Impact (economic and social) on Snug Cove as a village as described in the Snug Cove Village Plan
Opportunity for flexible, phased implementation in response to demand growth
Design options
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Appendix 4 – TWG Terms of Reference
Overview In developing its Strategic Plan, Bowen Island Municipal Council has identified the need to develop a practical, sustainable transportation strategy for Bowen Island. Over the next three years, Council needs to take decisions on transportation issues that hinge around ferry marshalling and the size of the ferry that will serve Bowen.
Council has recently adopted a framework document for Snug Cove, entitled Reshaping Snug Cove: A Framework for Taking Action, that identifies three separate but interconnected elements of a Snug Cove strategy: ferry marshalling, the delivery of civic facilities and the allocation and cost recovery related to the surplus lands. The decision-making framework for the Action Plan involves establishing three Working Groups to undertake various work programs, the Transportation Working Group (TWG) being one of the groups.
Sustainable Framework Council’s objective is to optimize transportation choices for Bowen residents and visitors, minimize the full costs and environmental impacts of our transportation systems, and live within the objectives and principles of Bowen Island’s Official Community Plan (OCP), the Policy Statement of the Islands’ Trust, and the GVRD’s Livable Region Strategic Plan (LRSP), and Sustainable Region Initiative (SRI). To do this, Bowen Island needs to make transportation decisions in an integrated manner, with their full consequences in mind.
In addition, several factors indicate that it would be wise to design a transportation system that facilitates low energy consumption and low pollution. o The Municipality of Burnaby’s report (2005) on peak oil warned against building an infrastructure that relied on low energy costs. o Recent energy research (e.g. Jaccard, 2005, p. 84) shows that municipal decisions on transportation systems and infrastructure have high impacts on energy consumption and pollution levels, and are extremely long lasting, and limit the introduction of more efficient alternatives. o The Municipality committed in 2001 to limit its emissions of greenhouse gases according to the FCM’s Partners for Climate Protection program, and has completed the first three milestones. The process included energy baseline research by the Pembina Institute (2001), which showed that transportation on and off the island is Bowen Island’s greatest source of greenhouse gas emissions. o Recent research on global warming indicates a higher probability that impacts (for Bowen summer drought, sea level rise, and the impacts of global destabilization) will be negative and considerable, and governments across Canada are beginning to develop a consensus on the need to reduce emissions. Therefore, over the medium term the municipality and its residents and visitors can expect to face additional costs on carbon dioxide emissions, so that transportation systems that rely on high energy use could become increasingly expensive. For these reasons, there may be significant risks in committing to a built infrastructure that relies on the high consumption of fossil fuels and the attendant emissions. There are considerable resources that can be brought to bear on transportation strategy decisions: o The OCP and the LRSP have objectives, principles and policies which relate specifically to transportation, and need to frame transportation decisions; Appendix 4 Page 1
Appendices BIM Transportation Working Group: Phase 1 Ferry Marshalling Location Options – Report December 2006
o There have been many studies and reports relating to transportation issues on Bowen that could be brought forward to assist in strategic decisions. In particular, the recent study by Hamilton and Associates will shortly become public and should be an invaluable resource of recent data; and o The Sustainable Community Advisory Committee and the Ferry Advisory Committee have both been involved in research and generated reports with respect to ferry and other transportation issues.
General Approach and Mandate of the Transportation Working Group The TWG will be asked to undertake a 2 phased program. Phase 1 will specifically address the ferry marshalling issue, and the TWG’s mandate is to. ¾ Provide information to Council on the three ferry marshalling options, information that can then be used to make a decision on which ferry option to pursue.
Phase 2 will cover related issues but from an Island perspective. The TWG’s mandate is to: ¾ Provide information to Council on the preferred size of ferry capacity options, improvements to the transit system, and transportation demand management alternatives.
Consultation with the community will NOT be an integral component of this work, however the TWG may invite stakeholder groups to attend their meetings. Council will conduct community consultation following receipt of the final report.
Once its work is completed, this Working Group shall be disbanded, unless Council decides to extend its role.
Specific Deliverables - Phase 1 The specific deliverables are as follows: ¾ Identify and list the objectives and principles of Bowen Island’s governing documents (OCP, Islands’ Trust Act and Policy Statement, and GVRD Master Plan for Crippen Park and the LRSP) and the Community Energy Plan, as they relate to transportation and Snug Cove; ¾ Identify, list and summarize key elements of existing studies and other literature that pertain to transportation planning on Bowen Island within the principles of the governing documents. ¾ Prepare an assessment matrix, using existing studies and literature, for each of the three ferry marshalling options according to the following types of criteria, not necessarily in order of priority: o Ability to meet ferry operating criteria for existing and potential capacities, such as on time performance and maintaining schedule o Commuter needs o Consistency with the principle of encouraging transportation alternatives o Cost o Effect on meeting the Community Energy Plan o Environmental impact o Impact on Crippen Park o Impact (economic and social) on Snug Cove as a village as described in the Snug Cove Village Plan o Opportunity for flexible, phased implementation in response to demand growth o Any other guiding principles
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Appendices BIM Transportation Working Group: Phase 1 Ferry Marshalling Location Options – Report December 2006
While Council has not required the TWG to provide a recommendation on which option to pursue, the TWG may provide such a recommendation, if it chooses to do so.
Specific Deliverables - Phase 2 The specific deliverables are as follows: ¾ Prepare an assessment matrix, using existing studies and literature, for the following three ferry-size scenarios for Bowen Island: o The current ferry, 85 AEQ and 400-450 passengers; o Ferry expansion, new ferry with about 125 AEQ and 600 passengers, or o The new larger ferry with gallery decks, about 170 AEQ, according to the following criteria, not necessarily in order of priority: o Transportation alternatives and TDM measures needed to support each ferry option o Effect on community uniqueness, serenity and other OCP objectives o Environmental impact, including greenhouse gas emissions o Effect on traffic and pedestrian safety o Ferry marshalling area needed o Commuter needs o Housing affordability o Any other guiding principles drawn from Phase 1 above. ¾ Provide recommendations to Council on improvements to the transit system both on and off Island, and proposed measures to manage transportation demand.
Composition of the Transportation Working Group The Transportation Working Group will consist of two members from each of the Ferry Advisory Committee and the Sustainable Community Advisory Committee, two members of Council as liaison members, the Chief Administrative Officer, and the Municipality’s Planning Consultant. The three members from each advisory committee will select its own representatives to sit on the Working Group. The Council will select a chair amongst its members.
Working Group Resources Municipal staff and the Planning Consultant will provide technical assistance to the TWG. The Planning Consultant will also assist in the compilation of the final report, and in participating on other Working Groups, will provide perspective on the activities of the other Groups. A transportation planner will be retained to provide technical expertise to the Working Group, if required.
Schedule There is some urgency to resolving the issue of ferry marshalling, so Council is requesting that the TWG complete Phase 1 by September 30, 2006. As is indicated in the framework document, Council is intending to make a decision on which of ferry marshalling options to pursue in January 2007. Regarding Phase 2, a report shall be submitted by March 31, 2007.
Budget The Working Group has a budget of $6,000.00, to be expended on clerical support, photocopying, and professional transportation consulting if required.
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Appendices BIM Transportation Working Group: Phase 1 Ferry Marshalling Location Options – Report December 2006
Appendix 5
Transportation Working Group Members
Advisory Group Representatives (Selected by Advisory Committees)
Matthew Redekopp (Aug-Sep) Sustainable Community Advisory Committee Eric Sherlock Sustainable Community Advisory Committee Karen Wristen Sustainable Community Advisory Committee Gil Yaron Ferry Advisory Committee
Chair (Appointed by Council)
Elizabeth Ballantyne
Council Liaison
David Hocking Alison Morse
Municipal Staff Liaison
Isabell Hadford
Planning Consultant
Michael Rosen
Appendices BIM Transportation Working Group: Phase 1 Ferry Marshalling Location Options – Report December 2006
Appendix 6
Correspondence to TWG
6a. Bowen Heron Watch, September 26, 2006 Appendix 6 Page 1
6b. Bowen Library, October 10, 2006 Appendix 6 Page 3
Appendices BIM Transportation Working Group: Phase 1 Ferry Marshalling Location Options – Report December 2006
From:
Hi Eric- I thought you would be interested that a pair of herons returned again to the traditional nest tree beside the Old General Store/Library again this year-
Note that herons have visited this nest site early in the nesting season every year since 1998 to present. No nesting took place there in 2003, 2004 or 2005, although some nests had been worked on and two nests were still present this spring. This behaviour indicates that the Old General Store nest site has significant value to Bowen's herons.
The recent shifting of nest locations within available island nesting habitat may be enabling our Bowen herons to better avoid predation by eagles. (Eagles have shifted from fish to bird diet in Lower Mainland - ask anybody with chickens!) It is evident, from year to year, that herons need more than just a few trees from which to select the season’s ideal nesting site and that Douglas-fir and red alder trees are very important. If we are to improve heron populations locally and in the region, we need excess nesting sites. (From our 1994 report and recommendations to Council)
Below is the most recent Heron Advisory, and attached is a letter from BI Conservancy regarding the parkland between Government Rd and the lagoon that might be helpful. Note that connectivity of green space is mentioned - nowadays we would call this one end of the Cove to Cape Greenway. Regards-Sue Ellen
From: Sue Ellen Fast
Heron nesting is underway, please follow municipal protection policy which extends to July 31 or until all chicks have left the nests. Assume that any of the nest sites listed could be active this season. Or they could be abandoned, we just can't predict. Several new or re-nests in this advisory, perhaps due to lots of disturbances this season (many various development activities plus naturally falling trees and predation by eagles and/or crows.) Note this is a blue-listed species, one of Bowen's several species at risk.
Current status of herons at known nest sites on Bowen: Davis Property, 465 Melmore, first house past Lagoon nest, in tall evergreens above Norm Davis' "Sleepy Hollow" Nesting at this site appears to be finished for this year. On July 1st the householder reported that all was pretty quiet now, and he was power-washing outdoor areas. He thought there had been 3-4 nests, had heard chicks, also reported lots of crows and predation, showed me some eggshells that had been broken into by predators, he thought crows but had also seen eagles though not actively after herons at the times.
Old School Trail, (Crippen, near Killarney Lake Trailhead at Miller Rd. and Terminal Creek, in spruce): Nesting at this site appears to be finished for this year. On July 7 some older traces of whitewash (droppings), a heron feather and two visible nests were observed during a brief visit.
Snug Point (Venture, Cardena, Dallas Marina nest sites, in firs): No reports since May 18 when Venture Rd. developer cut more trees and had more rocks and gravel delivered. Lot now cleared of vegetation and re-graded, nests still present (branches overhang the lot from next lot).
Lagoon (Melmore at Causeway Trail, look out at red paint on fence, in alder, Potivin property) Active. One nest visible, probably a re-nest as appears to be a new nest higher in the same alder, adult heron observed apparently turning eggs before sitting to incubate (June 25), and sitting in nest (July 1).
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Old General Store (Crippen Regional Park, across from Snug coffee shop, in alder): Active, New. One large refurbished nest observed, chick(s) heard, lots of fresh fresh whitewash (droppings), and one adult observed flying away from nest on approach of observer (me) on July 7. I retreated quickly so as not to disturb them further. Presumably a re-nest. Also the parking lot closest to the nest tree had been
Appendices BIM Transportation Working Group: Phase 1 Ferry Marshalling Location Options – Report December 2006
freshly resurfaced, presumably with the usual heavy equipment and gravel delivery, although Heron Watch volunteers had not been contacted to check nest status as in previous years when work was contemplated before July 31.
Davies Creek (Crippen Regional Park, by Festival Field parking lot, in alder) Inactive to date? although needs checking because of sighting during last week of June of a heron flying over Cove towards Festival Field carrying a stick in its beak.
Explosives Creek/Tunstall Bay (McLean property, slated for sale/development): Active? No reports so far - difficult to check.
Sealeigh Park (1687 Adams Road). Four nests present in Douglas-fir. Inactive to date. Had been regularly monitored.
Please reply to report any other sightings to me, or inquire re details. Cheers - Sue Ellen (0483) Bowen Heron Watch is a joint project of the Bowen Nature Club and the Bowen Island Conservancy.
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Appendices BIM Transportation Working Group: Phase 1 Ferry Marshalling Location Options – Report December 2006
Bowen Island Public Library 430 Bowen Trunk Rd. PO Box 10, Bowen Island, B.C. V0N 1G0
October 10, 2006
Elizabeth Ballantyne, Chair Transportation Working Group C/o Bowen Island Municipality 981 Artisan Lane Bowen Island, B.C. V0N 1G0
Dear Elizabeth, I’m writing on behalf of the Bowen Island Public library Association Board to ask that The Transportation Working Group, in the process of considering the specific transportation requirements of Snug Cove, be aware and sensitive to the traffic and parking needs of Bowen’s Public Library.
It is the intention of the Library to continue to provide service to the Bowen community from the Old General Store for the foreseeable future. Ease of access and adequate parking are an integral part of providing such service to a dispersed community such as Bowen’s.
The Board would like to ask, therefore, that the Working Group in providing “information to Council on the three ferry marshalling options, information that can then be used to make a decision on which ferry option to pursue” include ease of access to the building and parking for Library patrons at the present location as criteria in assessing options.
Representatives of the Board would be pleased to meet with the Working Group to provide information and comment.
Yours truly,
Ross Carter, Chair, Bowen Island Public Library Association Board
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Appendices