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1 Place Image over this Blue Box Area. This box will not print. Sunshine Coast Regional District Final Report Integrated Transportation Study August 2011

2 August 24, 2011 Our Reference: Sunshine Coast Regional District 1975 Field Road Sechelt, BC V0N 3A1 Attention: Mark McMullen, Manager of Planning and Development Dear Mark: Reference: Integrated Transportation Study: Final Report ISL Engineering and Land Services is pleased to submit the Final Report for the above project. We believe we have achieved the project objectives as specified by yourselves and the project Stakeholders, especially in identifying a series of short-term, cost effective and impactful recommendations that compliment the longer term planning projects that have previously been undertaken on the Sunshine Coast. There are several competing priorities along the 80 km corridor which have made this project particularly challenging and exciting. Through the series of stakeholder workshops and public open houses we have also captured the communities key issues and concerns. We are especially pleased about the positive response our recommendations have received at the various Council meetings we have had the opportunity to present to. Thank you for giving ISL Engineering and Land Services and our team of sub consultants, dpl Consulting and Urban Forum Associates, the opportunity to undertake this study on your behalf. We also look forward to assisting the SCRD and the municipalities of Gibsons and Sechelt in the implementation of the recommendations contained in this Integrated Transportation Plan. Should you wish to discuss any aspect of this report, please do not hesitate to contact me. Yours truly, Bernard Abelson, P.Eng., M.Eng., TOPS Manager, Transportation Planning

3 Table of Contents Executive Summary 1.0 Background Objectives Overall Project Objectives Overriding Objectives Process Stakeholder and Public Consultation Project Team and Stakeholders Document Review and Site Visit Preliminary Assessment and Findings Region Overview Corridor Overview Data Collection Regional Growth Strategy and Collaboration Transportation Demographic Trends and Land Use Sustainability SWOT Analysis Overview SWOT Analysis Objective SWOT Analysis Integrated Transportation Plan Assessment of Highway Alternative Routes Congestion Areas Access Management Active Transportation Gibsons Bypass Options Transit Ride Share Air Transport Marine Transport Travel Demand Management Community Energy and Emissions Plan and GHG Reductions Communication Plan The Way Forward and Prioritization 116 E1 August 2011 Table of Contents

4 LIST OF TABLES Table 7.1 Route 3: Actual Growth 19 Table Crash Locations 2006 to Table Population Census 28 Table 8.1 SWOT Analysis Process 47 Table 9.1 Proposed Intersection Upgrades 55 Table 9.2 Estimated 2026 Hwy 101 Intersection Traffic Volumes in Sechelt 66 Table 9.3 Hwy 101 Intersection Scenarios & Performance: 2026 PM Peak Hour 68 Table 9.4 Ferry and Bus Passenger Transfer Times at Ferry Terminals 101 Table 9.5 Travel Demand Management Measures 112 Table 10.1 Assumed CO2 Reductions 114 LIST OF FIGURES Figure 1.1 Study Area: Sunshine Coast Regional District 2 Figure 2.1 Project Team Organization Chart 10 Figure 7.1 Traffic Count Locations 16 Figure 7.2 Route 3: Vehicles by Month 18 Figure 7.3 Route 3: Passengers by Month 18 Figure 7.4 Regional Growth Strategy Issues and Concerns 25 Figure 7.5 Long Term Ferry to Ferry Highway Bypass Alignment 28 Figure 7.6 Regional Growth Strategy Population Growth Areas 31 Figure 7.7 Land Use Plan, Gibsons OCP 32 Figure 7.8 Restricted Driveway Access on Gibsons Way 33 Figure 7.9 Traffic Back-up on Sunshine Coast Highway at Stewart 33 Figure 7.10 Traffic Congestion at Highway 101 & Wharf, Sechelt 34 Figure 7.11 Typical Sharp Bend Warning Sign on Highway 34 Figure 7.12 Intersection on Bend with No Deceleration Lane 35 Figure 7.13 Redrooffs Road Intersection 35 Figure 7.14 Unsafe Intersection and Surroundings 36 Figure 7.15 Pedestrian Conflicts at North Road, Gibsons Way Intersection 36 Figure 7.16 BC Transit Routes Map 37 Figure 7.17 Examples of Bus Stops 38 Figure 7.18 Bicycle Loading Bus Stop 41 Figure 7.19 Bicycle Facilities 41 Figure 7.20 Pedestrians on Highway 101, Gibsons 42 Figure 7.21 Pedestrians Walking in the Roadway, Sechelt 42 Figure 7.22 Sechelt District Airport 42 Figure 7.23 Sechelt Inlet Float Plane Dock 43 Figure 9.1 Existing Alternative Routes to Highway Figure 9.2 Sechelt Bypass Alignments 64 Figure 9.3 Theoretical Hwy 101, Teredo Street and Intersection Upgrades to Achieve Acceptable Performance Measures 70 Figure 9.4 Example of a Two Way Left Turn Lane in Cloverdale, Surrey 72 Figure 9.5 Teredo Street (Highway 101) Access Management 74 Figure 9.6 Rosina Giles Way Realignment Concept Plan 75 Figure 9.7 Gower Point Road to Lower Road Connection Options 81 Figure 9.8 Proposed Upgrades at Gibsons Landing 84 Figure 9.9 Highway 101 / Langdale Terminal Bike Lane Markings 85 Figure 9.10 Elphinstone OCP: Road Network Plan 90 Figure 9.11 Gibsons OCP: Major Road Plan 91 Figure 9.12 BC Ferries on Time Performance Chart 102 Figure 9.13 Suggested Corridor Park & Ride Locations 106 August 2011 Table of Contents

5 APPENDICES Appendix A Appendix B Appendix C Appendix D Appendix E Appendix F Appendix G Appendix H Appendix I Appendix J Appendix K Records of Stakeholder and Public Consultation Traffic Data and Video Presentation Ferry Schedules Crash Data Horizontal Curves Review Intersection Upgrades Gibsons Way Access Management Plans Sechelt to Earls Cove Trails Plans Gibsons Bypass Proposal BC Transit Bus Schedules Ferry Advisory Committee Memorandum August 2011 Table of Contents

6 Executive Summary The Integrated Transportation Study (ITS) for the Sunshine Coast includes an Integrated Transportation Plan (ITP) that has been built around three guiding principles, namely: 1. This is a regional ITP and therefore primarily regional issues are addressed. 2. There is a need for short-term, implementable and cost-effective recommendations, which on their own and collectively can make a significant impact on the Sunshine Coast, both regionally and locally, within the context of the ITP. 3. The current dual role of Highway 101 as both a regional, through highway and a local, community road needs to be recognized, and thus there is a need to improve the current road s safety for vehicular and non-vehicular transportation in the immediate term. In addition, it is evident that progress in terms of transportation improvements, be these road, alternative transportation, transit, etc., have been hampered in the past by several stakeholders having several different priorities. The acceptance by local stakeholders of the recommendations contained in this report therefore is essential to facilitate the next planning or design stage of the recommendations, to give clear guidance to the local, regional and provincial agencies, and to inform local community planning. To achieve One-Voice for transportation planning, and in order to set the example for public consultation and stakeholder input, the ITP has been developed with collective input and feedback obtained from stakeholder workshops, public open houses, and local government committee members, as well as other agencies including the BC Ministry of Transportation and Infrastructure and BC Transit. The emphasis of the Plan is on establishing alternatives to single occupant vehicle (SOV) trips, which currently make up 89% of trips, and also a reduction in greenhouse gas (GHG) emissions. The latter is a theme interwoven into the ITP with each section stating its influence on GHG reduction. Key area of the study process are presented below. Preliminary Assessment Prior to formulating the Plan, a thorough corridor and region overview was done. This included a review of: All Official Community Plans, Master Plans, and other local land use planning documents Road network studies Cycling and pedestrian studies Regional Growth Strategy background reports Community Energy Emissions Plan Others Traffic counts were also undertaken which demonstrated the significance of ferry traffic surges, in some locations peaking at over 200% higher than base traffic within a 15- minute period. August 2011 Page E 1

7 A corridor drive-through looked at the following: Land development and trends Transit operations and facilities Bicycle and pedestrian facilities Traffic operations and congested areas Traffic safety hot-spots Access management and highway mobility The airport Ferry operations and facilities SWOT Analysis A Strengths, Weaknesses, Opportunities, and Threats (SWOT) analysis was done, specifically focusing on matters of relevance to the ITP formulation. This analysis enabled a high-level strategic assessment of the region, and served as a coming together of the minds. Integrated Transportation Plan (ITP) The ITP process resulted in a set of recommendations, the majority of which require action in the short-term, in line with the guiding principles. Overviews of the findings for each section of the ITP are provided below: Assessment of Highway 101 This section primarily focuses on the highway alignment, looking at design speeds, horizontal curves, intersections, sight distances, signage and the condition of the road surface. Being a region-focussed study, the 80 km Highway 101 spine was the focus of this assessment. Several intersections on Highway 101 were also investigated with the intention of creating a consistent standard of intersection geometry along the corridor. Specific geometry looked at included turning lanes, acceleration and acceleration lanes, skew intersections, sight distance, etc. A total of 19 intersections were identified for varying degrees of upgrade. Alternative Routes Several sections of highway do not have parallel road networks. The closure of a section of the highway due to a crash, natural disaster or other emergency will therefore cut off those communities on either side of the incident. Particular areas of concern are the Chapmans Creek Bridge, which if closed, would prevent access to the hospital in Sechelt by residents east of the bridge, and the areas north of Halfmoon Bay, which have very few detour options. Recognizing where those areas are that do not have alternative routes to the highway enables the Regional District to focus on these areas and determine possible routing options. Congestion Areas As expected, the two areas experiencing traffic congestion are located in the urban areas, at the confluence of local and regional through, particularly ferry surge, traffic. In both Gibsons and Sechelt, the highway is a two-lane roadway with a high density of driveways to businesses and residences. August 2011 Page E 2

8 In Gibsons, a two-way-left-turn-lane (TWLTL) has been proposed for Gibsons Way which would restore left-turn access to the local businesses. These accesses were restricted by the conversion of Gibsons Way from four-lanes to two-lanes in Restoring these accesses is seen as an important component to the economic sustainability of Gibsons. In Sechelt, the section of highway between Field Road and Teredo Street is the section of the corridor experiencing the highest congestion, with failing operational conditions expected by To address this, and to address the high density of residential driveways on the highway along this section, the Sechelt Eastern Bypass is recommended. Sechelt Eastern Bypass As a minimum, the Sechelt Eastern Bypass would extend from the vicinity of Field Road in the east to Wharf Road to the west. However, the gradient of Field Road requires upgrading to achieve this connection and most specifically, the dogleg nature of this connection suggests that a more eastern tie-in location of the bypass back to Highway 101 is required. The alignment of this eastern extension is to be determined through consultation with all affected communities and local governments in order to address concerns such as ALR, property impacts, regional parks and other community planning issues. The continuation of this bypass westward beyond Sechelt towards Halfmoon Bay would relieve congestion throughout Sechelt. It will also limit the degree of upgrading of the existing highway that would otherwise be required to improve the mobility and level of service of the highway through Sechelt. Gibsons Bypass The Gibsons Bypass has been in the planning stages for over 20 years, and its construction challenges and associated costs results in it not being seen as a Ministry of Transportation and Infrastructure priority given the Ministry s need to address other province-wide projects. A Business Case for a highway bypass should however be done. The need for a bypass is clearly evident. In order to identify more short-term options, three alternatives are presented: i. Sunshine Coast Highway extension from Stewart Road to the vicinity of Highland Road ii. Interim alternative route on Reed Road iii. Cemetery Road alignment The Cemetery Road option is not considered viable. The extension of the Sunshine Coast Highway from Stewart Road to the vicinity of Highland Road is the highest priority, but would cost in the region of $20 million. In the interim, the Reed-Payne alternative route is the option that is achievable in the short term since it utilizes existing roads and is already used by many locals as an alternative route. This option will require the installation of a roundabout at Reed and Payne and an upgrade to the Highway 101/Payne/Pratt signalized intersection, the latter subject to a traffic analysis to determine the geometric requirements. Once both the Sechelt and Gibsons bypasses are constructed, the option to transfer the existing highway sections respectively to Sechelt and Gibsons is possible. This will enable the downgrading of the old highway sections to local and collector road functions only. August 2011 Page E 3

9 Active Transportation The ITP contains 19 policy areas related to alternative transportation that require attention. While the details of each are contained in the ITP, the principal recommendation is the establishment of a region-wide Alternative Transportation Committee. This committee, made-up of local authority representatives, cycling and pedestrian advocacy groups and the School District, could be tasked with guiding the 19 initiatives and to determine their priorities. This Committee should also liaise with the Ministry of Transportation and Infrastructure s maintenance contractor when undertaking shoulder widening construction. Transit Currently, 70% of the transit ridership are internal trips within the region, and 30% are ferry related. At present, the bus schedule for Route 1, the spine of the bus service on the Sunshine Coast, is strongly linked to the ferry schedule. The on-time operation of the ferry service therefore affects the bus schedule, or the other 70% of the internal ridership. In order to grow internal (local) ridership, a reliable and more frequent service is required on Route 1. The option to disconnect the Route 1 service from the ferry schedule was not supported, in favour of a 30-minute minimum frequency Sechelt to Langdale. This frequency will enable this disconnection, as a late ferry s passengers will then have a reasonable wait time for the next bus versus the current up to 1-hour wait. Improving the bus shelter facilities in the region is recommended possibly through the installation of solar lighting at shelters, paid for by creative revenue generation approaches, including advertising at the shelters. Identifying other forms of revenue generation, besides through increased ridership and advertising, is also supported. Community Transit Needs Assessment Survey During the stakeholder and public consultation process it became apparent that a Community Transit Needs Assessment Survey was required. It is recommended that this survey be undertaken in 2011, in time to serve as input to the Transit Plan to be done with the Sunshine Coast and BC Transit in Such a survey is critical to help determine which community bus routes should be expanded or established. Corridor Park and Ride Due to the spread-out nature of the communities along the corridor that result in low population densities, particularly north of Sechelt, implementing even an hourly bus service to these areas is not viable. An option to help concentrate potential users of a bus service is the establishment of Park and Ride facilities along the Highway 101 corridor from ferry-to-ferry. Preliminary easy-win sites have been identified, the finalization of which should be done with the required community consultation. Ride Share The better promotion of ride-sharing services and websites is recommended in order to reduce single occupant vehicle trips. The Park and Ride locations could be used for this purpose once established. August 2011 Page E 4

10 BC Ferries The BC Ferries operations have a significant influence on the region. Traffic surges due to ferry arrivals have a ripple effect along the entire corridor. The ontime operation of the service impacts bus operations both on the Sunshine Coast, as well as users connecting to the TransLink bus service at Horseshoe Bay. It also affects those commuting daily to and from greater Vancouver. Establishing bicycle storage facilities on the ferries and at ferry terminals is important, especially since cyclists pay an additional fee to bring their bikes on board. There is a need for more bus related information to be available on the ferries, including the selling of bus day passes on board. The Ferry Advisory Committees are seen as the critical link to BC Ferries for both the Route 3 and Route 7 services, as well as the Route 13 water taxi service to Keats and Gambier Islands. Air and Marine Transport The majority of air transport services are provided by float plane operations with a number of scheduled routes from Porpoise Bay. Better bus connections to the float plane terminals are recommended, and the extension of the runway at the District of Sechelt Airport is supported. Marine Transport primarily consists of ferry services and water taxis to the surrounding islands. The establishment of barge ports is seen as advantageous both from industrial and emergency evacuation points of view. Community Energy and Emissions Plan (CEEP) and GHG Reduction The SCRD completed a CEEP in early 2010, which recommendations were referred to in formulating the Integrated Transportation Plan in order to ensure the two studies were consistent. The GHG emission reductions that can be achieved through the implementation of the recommendations in the ITP were considered. However, since no actual modeling of travel operations was done, only assumptions were made as to possible reductions. Using the emissions generated by vehicle type taken from the CEEP, a total of 13,233 tonnes of CO2 annual reductions can be achieved, which represents a reduction of 11% of the total CO2 emissions generated in the region if all recommendations of the ITP are implemented. Communication Plan The promotion of alternative transportation modes is an important step in achieving a shift away from the single occupancy vehicle. Communication media are recommended to achieve this, as well as the messaging. The identification of Communications Champions is proposed for the Regional District and municipalities who will be responsible for distribution of this messaging. The Way Forward A series of prioritized recommendations is provided to help advance the implementation of the ITP. No one initiative is more important than another due to the diversity of issues and the fact that each section of the ITP has initiatives that can be advanced immediately. This is in line with the initial guiding principle of identifying short-term to long-term measures for implementation. August 2011 Page E 5

11 Two high priority, regional recommendations include the Sechelt East and Gibsons (from Stewart to the vicinity of Highland Road) bypasses. Both these bypasses have significant costs and are considered equal priority. In order to achieve direction, it is recommended that Business Cases be formulated for both bypasses. By doing these Business Cases according to recognized MoT Multiple Account Evaluations (MAE), the two bypasses can be compared in an analytical manner. Such an evaluation enables the Ministry to recognize the benefits of both bypasses and then determine the means to fund and construct these bypasses, either together or consecutively. Most importantly, this factual analysis will inform the Regional District and municipalities on the way forward with these bypasses, based on the MAE findings. This will enable local governments to lobby the MoT with one voice to ensure the Ministry does proceed with these important regional infrastructure needs. August 2011 Page E 6

12 August 2011 Page E 7

13 1.0 Background The Sunshine Coast Regional District (SCRD) is the regional government serving the residents of the Sunshine Coast on either a regional, inter-municipal, or local level. Formed in 1967, the SCRD is one of 28 Regional Districts designed to establish a partnership between electoral areas and member municipalities within their boundaries. The municipalities and electoral areas in the SCRD are shown in Figure 1.1, and comprise: District of Sechelt (Sechelt) Town of Gibsons (Gibsons) Sechelt Indian Government District (SIGD) Electoral Area A Egmont/Pender Harbour Electoral Area B - Halfmoon Bay Electoral Area D - Roberts Creek Electoral Area E - Elphinstone Electoral Area F - West Howe Sound The SCRD commissioned ISL Engineering and Land Services and its team of sub consultants to undertake an Integrated Transportation Study (ITS) for the entire region. The ITS focuses on mainly regional issues and only those local issues that have a regional influence. The ITS addresses such issues as: the regional road network; the integration of land use planning and existing and future land development; air and sea travel; roadway capacity; transit; pedestrians; cycling; green house gas emission reduction opportunities; and traffic safety, etc. Besides the need for a consolidated regional approach to transportation and land development in the Sunshine Coast, the region is also characterized by 89% of trips being made by private vehicle. This situation is compounded by a lack of choice when making transport decisions. August 2011 Page 1

14 Figure 1.1 Study Area: Sunshine Coast Regional District August 2011 Page 2

15 2.0 Objectives 2.1 Overall Project Objectives Over the years, several studies have been undertaken in the Sunshine Coast. Several of these studies have taken a long-term approach to address current issues, concerns and problem areas. At the same time, there is growing worldwide and regional pressure on the need for action on initiatives to protect the future of our planet, resulting in the passing of a Provincial Bill for communities to set targets to reduce their Green House Gas emissions (Bill ). These targets are a 33% reduction by 2020 and 80% reduction by 2050, based on base emission levels. The Community Energy and Emissions Plan completed by the SCRD in early 2010 highlighted that transportation contributes 35% of emissions on the Sunshine Coast, as shown in the chart below. Transportation improvements therefore present a significant opportunity for the Sunshine Coast to achieve emission reduction targets. Identifying short- to medium-term improvements is, as a result, the focus of this study, while continuing to support and enable the longer term planning done previously. Part of this strategy is also to reduce the dominance of the private vehicle as a mode of transport on the Sunshine Coast by providing people with mode choice. This can be achieved through improved and expanded transit, improved and expanded active transportation (bicycle, pedestrian, etc.) facilities and ride share opportunities. The active participation and engagement of local communities and individuals can further assist to achieve the desired mode shift, thereby enabling GHG reduction targets to be realized in line with Bill 44. The principal objectives of this regional study are therefore as follows: 1. Integrate Regional Land-Use and Transportation Recognising the current diverse and low-density land development which characterises the Sunshine Coast, examine opportunities to guide future development towards higher densities to support transit service provision. 2. Integrate Bus and Ferry Services Ensuring a reliable service by both BC Ferries and BC Transit, in particular schedule adherence, will increase current and future user confidence. 3. Improve Highway Mobility Highway 101 provides the central spine along which all modes of transport operate. Measures to ensure efficient movement of people, goods and services are therefore a priority. August 2011 Page 3

16 4. Improve Highway Safety Opportunities to protect human life will be identified through the analysis of crash statistics and assessment of known and potentially unsafe locations. 5. Identify Highway Alternative Routes Due to the economic backbone provided by the highway and access it provides for emergency services and the movement of people, goods and services in general, any closure of the highway has a profound effect, both in the immediate vicinity of the closure and on the corridor as a whole. Clearly identifying alternative routes to the highway reduces the impact of highway closures. Alternative highway routes in the Davis Bay Sechelt Village area are included as priorities. 6. Improve Regional Cycling and Pedestrian Infrastructure The beauty and relative tranquility of the Sunshine Coast provides an undeniable potential for active transportation such as cycling, walking, rollerblading and the like. This potential is currently not being realized. Ways to better achieve this will be explored. 7. Examine Cost-Effective Gibsons Bypass Options Over the years, there have been several studies and designs on building a highway bypass around Gibsons to lessen the effect of the ferry traffic surges. The principal obstacle to the construction of this bypass is limited funding and other higher priorities from a Provincial perspective. In the meantime, the problem exists. Proposals for a short-term solution, while still recognizing the long term bypass solution, will be explored. 2.2 Overriding Objectives Short-Term Project Identification In the early stages of this Integrated Transportation Study, it became apparent there was a need for short-term, implementable and cost-effective recommendations, which on their own and collectively could make a significant impact on the Sunshine Coast, both regionally and locally, within the context of the ITS. Several of the reference documents listed in Section 6 go back many years, with few if any of their recommendations implemented. As a result, the objectives of this study include the development of shortterm, realizable and stand-alone projects. In addition, whereas historically a Gibsons Bypass has been discussed and studied over several years, the need for a Sechelt Bypass has also emerged in more recent years One Voice It is evident that progress in terms of transportation improvements, be these road, alternative transportation, transit, etc., have been hampered in the past by several stakeholders having several different priorities. This has prevented effective planning processes with BC Ministry of Transportation and Infrastructure (MoT), BC Transit and other regional agencies. The acceptance by all local stakeholders of the recommendations contained in this report therefore is essential to facilitate the next planning or design stage of the recommendations, and to give clear direction to the local, regional and provincial agencies, and to inform local planning. August 2011 Page 4

17 3.0 Process The study was divided into three phases: Phase 1: Identify project stakeholders and regional issues, including a SWOT (Strengths, Weaknesses, Opportunities, Threats) analysis. Phase 2: Stakeholder s review of Phase 1 work and development of the Integrated Transportation Plan and subsequent stakeholder review. Phase 3: Public consultation process to review project proposals and prepare a list of prioritized project recommendations and action items. August, 2011 Page 5

18 4.0 Stakeholder and Public Consultation The purpose of the consultation process was to garner public and local stakeholder input and feedback at milestone stages in the project. This was to ensure the end product was in line with expectations, and addressed the objectives of undertaking the Integrated Transportation Study. The primary consultation workshops, open houses and public meetings included the following: Forum Date Objective Format October 26, 2009 Stakeholder Workshops #1 Stakeholder Workshops #2 Public Open Houses in the District of Sechelt and the Town of Gibsons Stakeholder Meeting #3, SCRD Stakeholder Meeting #4, Sechelt Stakeholder Meeting #5, Gibsons Public Meeting #2 March 1, 2010 March 23, 2010 December 10, 2010 January 12, 2011 January 13, 2011 February 4, 2011 Obtain feedback on SWOT analysis (distributed prior to workshop) Record additional issues, concerns, ideas Incorporate these into study where appropriate Present study outputs Record feedback, comments, concerns, ideas Incorporate these into study where appropriate Present study outputs Record feedback, comments, concerns, ideas Incorporate these into study where appropriate Obtain consensus on additional issues raised Obtain consensus on recommendations for Sechelt and north of Sechelt Obtain consensus on recommendations for Gibsons and south of Sechelt Obtain final comment from public Records of the consultation process are contained in Appendix A. Participants rotated through four tables of key topics Each participant was given the opportunity to give input Slide show presentation of all project outputs, draft recommendations, findings Comment sheets distributed to enable stakeholders to provide feedback both at and after the workshop Series of 20 story boards, with video presentation of ferry traffic surges, that reflected the technical study and public workshop comments. Comment sheets with story board topics handed out at registration to enable public to provide feedback both at and after the Open Houses Discussion meeting Discussion meeting Discussion meeting Overview presentation Story boards August 2011 Page 6

19 In summary, public consultation included five stakeholder workshops, three public open houses, presentations to the Town of Gibsons, District of Sechelt and Sechelt Indian Band Council, review by the Agricultural Advisory Committee (AAC) and five Electoral Area Advisory Planning Commissions (APCs), as well as discussion at other community association / group meetings in Roberts Creek, Elphinstone and West Howe Sound. In all, the ITS process has involved consultation with the public and stakeholders at 25 meetings, not including public discussion at the SCRD s Planning and Development and Transportation Advisory Committees. Overall, feedback from the above consultation process was favourable towards the proposals and recommendations developed through the study. The video presentation of the ferry traffic surges was particularly well received in its visual capturing of the surge. (A copy of these video files is contained in Appendix B.) There was some scepticism on the introduction of roundabouts in the Sunshine Coast, details of which are provided later in the report. Of specific concern was the use of the road by larger trucks, ferry surge traffic, pedestrian use and the ability to accommodate the size of roundabout needed within the current road allowance. There was also a call to action from all parties. Given some of the short-term strategies outlined later in the Integrated Transportation Plan (Section 9), this should be possible provided there is the necessary collective commitment and agreement on priorities from all authorities and stakeholders. August 2011 Page 7

20 5.0 Project Team and Stakeholders There are a number of stakeholders involved in this study due to it covering two municipal areas, five electoral areas and two First Nations over a corridor length of over 80 km. The Technical Advisory Group (TAG) comprised representatives from the following organisations: Sunshine Coast Regional District (SCRD) District of Sechelt Town of Gibsons Sechelt Indian Government District BC Ministry of Transportation and Infrastructure (MoT) BC Ferries BC Transit The multidisciplinary consultant team was included on the TAG. Led by ISL Engineering, the team comprised the following companies, with their areas of expertise provided: ISL Engineering and Land Services (lead consultant, transportation planning, traffic engineering, road network design, property impact assessment, cost estimates) Urban Forum Associates (land use and town planning, public consultation) dpl CONSULTING and TourBC (cycling and pedestrians) The Project Organisation Chart is shown in Figure 2.1. The multidisciplinary nature of the Integrated Transportation Study impacts several local stakeholders. In order for the ITS to be effective, input and subsequent buy-in of all the regional stakeholders is important. Besides transportation service providers, stakeholders include business and industry forums, tourist bodies, cycling associations, school districts, etc. The stakeholder groupings are listed below, including the respective identified representatives that were invited to the workshops: Transportation providers (all modes and types): City Transfer D. Kennedy Trucking Malaspina Coach Lines Mountain Marine Transportation Ltd. Rideshare Foundation Route 101 Society Sechelt Airport Sechelt School Bus Sunshine Coast Shuttle Sunshine Coast Ride Share Network Southern Sunshine Coast Ferry Advisory Committee Tofino Airlines Transportation Advisory Committee West Coast Air August 2011 Page 8

21 Business, Land development, Schools, Government bodies: Best Coast Initiatives Pender Harbour Community School Society School District No. 46 Sunshine Coast Bed & Breakfast Cottage Owners Association Spani Developments Ltd. Department of Fisheries and Oceans Cycling and Pedestrians: Parks Planner, SCRD Jody Schick (Cycling Advocate) Cycling BC Trails & Walking Paths Emergency services: BC Ambulance SCRD Emergency Program Coordinator ICBC RCMP Community organisations, including Business Chambers: Davis Bay/Wilson Creek Community Association East Porpoise Bay Ratepayers Association Egmont/Pender Harbour Advisory Planning Commissions (APC) Elphinstone APC Elphinstone Electors Association Gibsons Chamber of Commerce Gibsons Landing Business Association Halfmoon Bay APC Howe Sound Pulp and Paper Halfmoon Bay Citizens Association Pender Harbour and Egmont Chamber of Commerce Roberts Creek Community Association Roberts Creek APC Roberts Creek OCP Committee Sandy Hook Community Association Sechelt Chamber of Commerce Sechelt Creek Contracting Sechelt Downtown Business Association Sechelt Village Community Association Sunshine Heights Owners & Residents Association Tuwanek Ratepayers Association West Howe Sound APC West Howe Sound Electors Association West Howe Sound OCP West Porpoise Bay Community Association August 2011 Page 9

22 Sunshine Coast Regional District Stakeholder Group Technical Advisory Group Sunshine Coast Regional District BC Ministry of Transportation and Infrastructure BC Ferries BC Transit Local Municipalities Electoral Districts Sechelt Indian Government District Private Sector Stakeholders Air Operators Business Chambers of Commerce Other Identified Stakeholders Sunshine Coast Regional District BC Ministry of Transportation and Infrastructure BC Ferries BC Transit Local Municipalities Electoral Districts Sechelt Indian Government District PROJECT MANAGER Bernard Abelson, P.Eng., M.Eng., TOPS Transportation Planning Traffic Engineering and Safety Land Use Planning and Public Consultation Road Networks Design Bicycle & Pedestrian Bernard Abelson, P.Eng. Borg Chan, P.Eng. PTOE Hassan Shaheen,P.Eng. Borg Chan, P.Eng., PTOE Megan Mallet-Paret, EIT Urban Forum Associates: Lance Berelowitz AA Dip MCIP Ed Kolla, P.Eng. Cory Clark, P.Eng. dpl Consulting: Danelle Laidlaw Ed Kolla, P.Eng. Bernard Abelson, P.Eng. Figure 2.1 Project Team Organization Chart August 2011 Page 10

23 6.0 Document Review and Site Visit There have been several studies undertaken for the Region as a whole and for local municipalities on the Sunshine Coast. Studies have also been done by BC Ferries and BC Transit which influence the Integrated Transportation Plan. The list below includes those studies reviewed as part of formulating this ITP: Official Community Plans: 1) West Howe Sound Official Community Plan 2) Twin Creeks Area Official Community Plan 3) Gibsons Official Community Plan 4) Elphinstone Official Community Plan 5) Roberts Creek Official Community Plan 6) Sechelt Official Community Plan 7) Halfmoon Bay Official Community Plan 8) Egmont/Pender Harbour Official Community Plan Business Strategy Reports: 1) BC Transit Sunshine Coast Transit Business Plan, July ) BC Ferries Business Plan Fiscal Year Ending March 31, ) BC Ferries Strategic Plan ) BC Ferries Customer Satisfaction Tracking Annual Report 2008 Road Network Studies: 1) Sunshine Coast Regional Highway Study, Binnie, June ) Highway 101 Safety and Operational Review, North Road to Redrooffs Road, Urban Systems, April ) Gibsons Bypass Extension Study, Binnie, July ) Gibsons Bypass Extension Planning and Design Study, Binnie, October ) Road Network Study, District of Sechelt, CTS, January ) Road Network Plan Study, Town of Gibsons, Binnie, March ) West Sechelt Comprehensive Development Area Road Network Study, Traffic Assessment Report, Binnie, December ) Highway 101 Field Road to Conveyor Belt Conceptual Design Report, Binnie, February ) Transportation Master Plan, District of Sechelt, Bunt, December 2009 Cycling and Pedestrian Studies: Others: 1) Parks and Open Spaces Master Plan, July ) Data and Trends Related to Growth Issues on the Sunshine Coast, SCRD Planning and Development Division, February ) Airport Development Plan for Sechelt/Gibsons Aerodrome, July ) Sechelt Marine Access, Sechelt Economic Development Partnership, July ) Upper Gibsons Neighbourhood and Strategic Servicing Plan, Urban Systems, October ) Strategic Park Master Plan, SCRD, December 2004 August 2011 Page 11

24 6) A Transportation Plan for the SCRD, Delcan, June ) Gibsons Landing Transit Feasibility Study, Opus Hamilton, December ) Sunshine Coast Community Energy and Emissions Plan, Draft Final Report, 2010 As seen by the list, extensive previous studies have been undertaken either by the SCRD, the Ministry, Sechelt or Gibsons, some of which have recently been concluded in the past two or three years and have a regional influence. The findings of these studies are incorporated into this study, or expanded on to better represent a regional perspective or influence and to fill any gaps identified. Besides the document review, the consultant team undertook a corridor site visit with Regional District staff to clarify the Regional District s issues and concerns and identify possible additional issues. The overall road network and hierarchy were observed, looking for traffic safety concerns, capacity problems, signalization, bicycle and pedestrian facilities, new development patterns and trends, transit operations and facilities, accesses onto the highway, key intersection layouts, geometric concerns, topographic constraints, etc. ISL staff also interviewed the Visitor Centre staff at Gibsons, Sechelt and Madeira Park, as well as staff manning the Visitor Information Desk on the ferry from Horseshoe Bay to Langdale which is operated during the summer months. Other individuals interviewed along the corridor included one of the airline operators at the Sechelt Airport. The purpose of these interviews was to get a complete understanding of the current issues and concerns of local residents, business owners, tourism centres, etc. that might influence the outcome of this study. August 2011 Page 12

25 7.0 Preliminary Assessment and Findings 7.1 Region Overview The SCRD is experiencing rapid growth, resulting in an increasing demand for services, including all transportation related services, placing pressures on the natural environment. The estimated growth rate for residential properties is 2.7% for the rural areas; 1.8% for the Town of Gibsons; and 4.9% for the District of Sechelt. In 2009, the Regional District decided to focus its priorities on six areas: 1. Developing a Regional Long-term Sustainability Plan. 2. Protecting the Water, Aquifers and Watersheds Ensuring Clean and Safe Drinking Water for All Areas. 3. Providing Proactive and Collaborative Leadership. 4. Managing Solid Waste. 5. Achieving Financial Sustainability. 6. Developing a Regional Growth Strategy or Alternative. The first priority incorporates the 2007 priorities which listed addressing infrastructure challenges and needs, and providing effective and accessible transportation. Regional growth and sustainability fall within the scope of, and are affected by, the Integrated Transportation Study, as growth and development influence transportation demand, leading to infrastructure needs and use of that infrastructure by all the modes of transportation. Specific areas of focus include: To develop a Comprehensive Transportation Plan in conjunction with the Regional Growth Strategy or alternative. To collaborate with the Ministry of Transportation and Infrastructure on a Five- Year Road Development Program. Continue to develop enhanced cycling infrastructure and pedestrian walkways as part of the transportation network. 7.2 Corridor Overview The Sunshine Coast is characterized by the Highway 101 corridor that essentially follows the coastline from Langdale to Earls Cove a distance of about 80 km. Approximately 12 km north of Langdale is the paper mill operation of Port Mellon. Just south of Langdale is the Town of Gibsons ( Gibsons ). Due to its proximity to the Langdale ferry terminal, Gibsons is a hub of tourist activity, especially in the summer months. Most of the paper mill workers live in Gibsons. About 25 km west of Gibsons is the District of Sechelt ( Sechelt ). Gibsons and Sechelt are the only two towns along the Highway 101 corridor, with substantially residential development and marinas located between these two towns and continuing northward to Earls Cove while there are numerous other historic rural coastal settlements. While Highway 101 passes through Gibsons, a partial bypass diverts a significant amount of ferry traffic away from the tourist waterfront areas, before linking to Highway 101 at Gibsons Way via North Road. At Sechelt, the highway is the primary arterial through the town, with commercial, industrial and residential activity located close to the highway. Further west, Highway 101 provides the primary access to smaller towns and coastal marinas at Redrooffs, Halfmoon Bay, Secret Cove, Madeira Park and Garden Bay, amongst others, before ending at the Earls Cove ferry terminal, where ferry passengers continue their journey to Powell River and eventually to Comox on Vancouver Island. August 2011 Page 13

26 Historically, the Highway 101 corridor was completed and paved as a provincial arterial highway in Significant highway upgrades since then include the Roberts Creek bypass and Redrooffs bypass. As already indicated, current bypasses are being discussed at both Gibsons and Sechelt, as well as a ferry to ferry bypass. Access to the Sunshine Coast Regional District is either by sea or by air there is no road access. While a road link from the Squamish area has been discussed over the years, this link has neither been planned nor given a time horizon. Since the majority of people moving to and from the Sunshine Coast are from the greater Vancouver area, the use of such a road is likely to be minimal, but would be needed in the event of a major emergency evacuation scenario. Air travel only makes up a very small percentage of travelers to the area, and the majority of the access by air is via float plane companies that fly into Sechelt Inlet where there are two landing docks. The District of Sechelt Airport is very small and can only accommodate two, four or six-seater aircraft, limited by its runway length. Ferry travel is the primary form of transport to and from the Sunshine Coast, with ferries arriving at Langdale ferry terminal from Horseshoe Bay every two hours during the day, except during July and August when there are some additional sailings, before returning to Horseshoe Bay. If the arriving ferry is full, an average of 360 vehicles and trucks as well as motorcyclists and bicyclists unload at Langdale and move through the corridor like a tidal wave, dissipating as this platoon moves westwards towards Earls Cove. Even at Sechelt, 25 km from the ferry terminal, this wave is still evident. This results in a unique set of traffic and transportation issues. The return ferry trip to Horseshoe Bay causes a similar affect as travelers head to Langdale terminal, however scattered arrival times at the port lessen the significance of this ebb and flow of traffic. A similar situation occurs at Earls Cove, however these ferries carry much fewer vehicles (about half of the Horseshoe Bay ferry), and since there are no towns such as Sechelt or Gibsons close to Earls Cove, the impact of these ferry arrivals and departures is much less evident as traffic dissipates and spreads out over the travel distance to Sechelt. Competing Users A unique characteristic of Highway 101 is that it has two competing and diametrically opposite functions. For the region, it serves as the ferry-to-ferry corridor and meets the commuter needs in the region, as well as for Powell River and beyond. However, locally it serves as a local road, providing access to residential properties as well as shopping and other activities. This contrast in user needs causes conflict in that local residents require a safe, low speed, easily accessible roadway, whereas commuters require a higher speed, high mobility corridor. Satisfying both these requirements is a challenge and presents a very legitimate argument to separate these two functions. One way to achieve this is to construct bypasses around those areas with high driveway densities in particular. To a degree, the Sunshine Coast Highway at Langdale removes traffic from Marine Drive to Gibsons. Another area of highest driveway density is between Field Road and Monkey Tree Lane in Sechelt. From a business perspective on the other hand, bypasses are not encouraged due to the potential loss in pass-by business. August 2011 Page 14

27 7.3 Data Collection Traffic Data Data Collection There are various traffic volume data sets included in the collective background studies, but these are either dated and/or cover limited geographic areas, often also driven by developer applications. Therefore, the ISL team undertook corridor length traffic data collection, thereby giving the region a good base reference set of data for future use. The count timing and locations were planned around the peak periods for local traffic as well as the ferry schedule to record the ferry arrival and departure traffic patterns, and particularly the dissipation of the westbound traffic from Langdale. Key intersections along the entire corridor were selected, based on current land development and to capture movement patterns. These intersections are listed below and are shown graphically in Figure 7.1: 1. Highway 101 and Gardens Bay Rd; 2. Highway 101 and Francis Peninsula Rd; 3. Highway 101 and San Souci Rd; 4. Highway 101 and Brooks Rd; 5. Highway 101 and Redrooffs Rd N; 6. Highway 101 and Redrooffs Rd S; 7. Highway 101 and Norwest Bay Rd; 8. Highway 101 and Extra Foods/Hospital Access; 9. Highway 101 and Wharf Rd; 10. Highway 101 and Selma Park Rd; 11. Highway 101 and Field Rd; 12. Highway 101 and Roberts Creek Rd; 13. Highway 101 and Lower Rd; 14. North Rd and Gibsons Way; and 15. Highway 101/ Marine Drive and Sunshine Coast Hwy Count station 8 was intended to be at Wharf Road and East Porpoise Bay Road, but on the day of the count it was found that this intersection was closed due to roadwork construction on East Porpoise Bay Road. The count station was therefore relocated to the detour location on the highway. The intersection traffic count was conducted over two days, Tuesday, September 22 and Wednesday, September 23, This period was chosen as the median traffic volumes over the year are better represented by this time period than lowest volumes in the winter and highest volumes in July and August. Full movement traffic counts were done over the following time periods: 08:00 10:00 (2 hrs) 11:00 13:00 (2 hrs) 14:00 18:00 (4 hrs) The following modes were counted: Car Recreational vehicle Truck Bicycle Pedestrian August 2011 Page 15

28 Figure 7.1 Traffic Count Locations August 2011 Page 16

29 Data Analysis The traffic data clearly reveals the extent of the traffic volume surge associated with the ferry operations. Eastbound (towards Langdale terminal), the surge is not too dramatic, however westbound surges result in increases of over 100% above estimated base traffic volumes throughout the corridor. What is significant about these increases is that they only have a maximum of 15 minute duration. Either side of these 15 minute surges, traffic reverts back to normal. With only six ferry arrivals at Langdale during the day (at 07:20, 09:20, 11:20, 13:20, 15:30 and 17:30) and two in the evening (19:25 and 21:25), these 15 minute surges are separated by two hours and total only two hours (eight surges of 15 minutes each) in a 24 hour period, or just over 8% of the day. Given that not all the ferries are full, the actual surge period is likely to be less than the 15 minute count period indicates. The summarized traffic volume graphs showing the surge peaks are provided in Appendix B. Also, enclosed is a video representation of these counts, both for eastbound and westbound traffic volumes in the afternoon period. These videos serve to clearly demonstrate the dramatic extent of the ferry surges, and the subsequent return to base traffic conditions. Obviously during the summer months, with more and fuller ferries, the impact of these surges is far greater, however this situation occurs for less than 20% of the year, and again, only after ferry arrivals. The above statement of facts is by no means intended to undermine or neutralize the impact of the ferry traffic surges. These impacts are real and do affect local communities, with the resultant on-going pressure to build highway bypasses around communities. The reality is that given the above facts, the Ministry of Transportation and Infrastructure continues to argue that a business case does not exist to build any bypasses, especially when combined with funding shortages and competing infrastructure demands. Previous studies motivating bypass alignments and progressing to design stages are considered important and remain relevant. However, these appear to remain long term options. In the interim, every effort must be made to reserve these corridor alignments to ensure land availability when the time to construct arrives. Given the real impact of the ferry traffic, and the need to reduce greenhouse gas (GHG) emissions in the short term, this study will seek short term solutions in order to relieve traffic impacts and achieve GHG reduction targets. Traffic analysis outside of the ferry surges will be presented later in this report Ferry Data Data Collection and Analysis Vehicle and passenger volumes for Route 3 for 2009 and 2010 were obtained from BC Ferries and are presented in Figure 7.2 and 7.3 respectively. Route 3 is the Horseshoe Bay to Langdale route. Considering the month of September 2009, the date of the region-wide traffic count, the graph shows 100,948 vehicles travelled on the route. The ferry schedule applicable between the 1 st and 7 th of September, and between the 8 th and 30 th of September is shown in Appendix C. August 2011 Page 17

30 Sunshine Coast Regional District With the additional sailings during the summer months, it is assumed there are on average 16 sailings per day between the Sunshine Coast and the Mainland, or eight in each direction. Given there are 30 days in September, this translates to an average of 210 vehicles per sailing. This is consistent with the counted traffic volumes at the Langdale Terminal, Marine Drive intersection. Route 3 s ferry capacity is 360 vehicles, including 12 semis on both the Queen of Surrey and Queen of Coquitlam ferries. Sailings are therefore on average 58% full in September. Figure 7.2 Figure 7.3 Route 3: Vehicles by Month Route 3: Passengers by Month From Figure 7.2, the month of May and June are similar to September in terms of vehicle volumes and number of sailings, meaning that for the remaining seven months, from October to April, ferries are less than an average 58% full. There therefore remains significant spare vehicle capacity in the current ferry schedule. August 2011 Page 18

31 As shown in Table 7.1, annual ferry vehicle traffic volumes grew by 3% between February 2010 and February This is higher than the increase predicted in the BC Ferries Strategic Plan Appendix 5 (found at - select Strategic Plan under About BC Ferries in the left hand column) which predicts a 1.1% increase in vehicle traffic to On the other hand however, passenger volumes dropped by 2% over the same period. Table 7.1 Route 3: Actual Growth BC Ferries have also indicated at the Ferry Advisory Committee meetings that they are already providing ±50 more sailings per year than they are obliged to, with additional Horseshoe Bay 17:50 sailings on Tuesdays, Wednesdays and Saturdays starting in the summer of They also have no plans to use bigger ferries on Route 3. It is therefore concluded that unless other initiatives are implemented, such as tourism promotion, or there is substantial future growth in population on the Sunshine Coast (discussed later), ferry vehicle volumes will remain fairly consistent in the short to medium term Traffic Safety Crash statistics for the Highway 101 corridor were obtained from the Insurance Corporation of British Columbia (ICBC). Data for the years 2006, 2007 and 2008 was analyzed. A summary of the data for all those locations that have had 10 crashes and higher over the three years is shown in Table 7.2. A complete list of crash locations is provided in Appendix D. Table Crash Locations 2006 to LOCATION TOTAL PAYNE/PRATT (Gibsons Way) SHAW RD (Gibsons Way) REDROOFFS RD SCHOOL RD (Gibsons Way) VENTURE WAY/MAHON (Gibsons Way) SHORNCLIFFE AVE FIELD RD COWRIE ST FLUME RD DAVIS BAY RD REED RD HENRY RD August 2011 Page 19

32 Only crash totals are provided and not crash rates. This is due to the unique traffic surges on the Sunshine Coast, and the crash records not being related to these traffic surges. Knowing this correlation would give significantly different crash rates, versus applying average daily traffic volumes. For the purposes of this study, crash totals were deemed sufficient. The data at Payne/Pratt Road, Shaw Road and School Road was gathered prior to Highway 101 being modified to a two lane cross-section with proper turning provisions at intersections and access points. As a four lane roadway, there were no turning lanes provided, and the lack of turning restrictions to access properties along this section of the Highway would have influenced the crash statistics. The reduced cross-section was implemented in May 2009, so recent, meaningful crash data was not available at the time of writing. For the purposes of this project, no further analysis or recommendations will be provided for these three intersections. Of the crash data available for the other nine intersections, the predominant crash type is rear-enders involving turning vehicles where the inattentiveness of the driver behind the turning vehicle caused the crash. Each intersection location is discussed separately below, and upgrade proposals are provided in Section 9. Redrooffs Road Contributing Factors A contributor to the rear-end crashes at this location is likely the steep angle of skew of the intersection, in the order of 17. Motorists exiting Redrooffs onto the Highway are required to look over their left shoulder to look for oncoming traffic. Adding to the uncertainty is the steep downhill eastbound approach of the Highway at this location, resulting in high travel speeds, therefore reducing perceived gaps and causing exiting motorists to hesitate. Motorists behind the lead vehicle are also looking over their shoulder, contributing to the rear-ender crashes recorded here. The Redrooffs Road intersection is located on a climb in the westbound direction, just after the start of a climbing lane. Accelerating motorists using this lane are then suddenly confronted by motorists turning left into Redrooffs Road. Due to the skew angle, turning motorists also make this left turn at high speed. Possible Solutions Improving the angle of skew of the intersection to enable motorists to better look for oncoming vehicles and determine the actions of the motorist in front of the queue is likely to significantly reduce the risk of rear-enders at this intersection. Intersection warning signs on the downhill approach on the Highway will both raise awareness to Highway motorists of the presence of the intersection, and possibly contribute to reducing highway speeds. Clearly separating the turning lane from the climbing lane will also facilitate safer turning movements both into and out of Redrooffs Road. Field Road Contributing Factors Many of the crashes at this location were turning related, even with separate turning lanes. Inattentive drivers and also the setting sun blinding motorists are recorded as causes. Confusing highway pavement markings just west of this intersection could also be a contributing factor, where southbound to westbound motorists merge into the turning lane for Canadian Tire, which lane also has a bus stop in it. August 2011 Page 20

33 Possible Solutions Field Road is located after bends in the Highway if travelling in both directions, so sight distance on approaches could be a contributing factor. Since improving the sight distance is not an option to due property constraints, lengthening the turning lanes could be considered, allowing turning motorists to decelerate in the turning lane versus in the through lane. Clearly separating the merge, turning lane and bus stop will assist motorists in their decision making. Cowrie Street and Shorncliffe Avenue Contributing Factors These intersections provide access to the Cowrie Street business district, therefore turning volumes are higher at these locations. Cowrie is a signalized intersection at Highway 101 and Shorncliffe is stop controlled on the side road. Possible Solutions Due to the congestion experienced along the section of Highway 101 between these two intersections, upgrade measures are proposed as part of this study. Part of these upgrades will seek to address the crashes at these intersections. Davis Bay Road Contributing Factors For westbound traffic on Highway 101, Davis Bay Road is located just after a bend in the highway, which restricts sight distance. Traffic slowing to turn right onto Davis Bay Road off the highway, or stopped to allow pedestrians to cross the highway to and from the waterfront, increases the likelihood of the rear-ender crashes occurring at this location. In addition, motorists turning this corner are easily distracted by the ocean panorama one sees as you turn the corner and look onto the Davis Bay beachfront. The scenery, onstreet parking, pedestrians and bus stop all contribute to distracting motorists. For eastbound motorists, crash reports indicate rear-enders due to motorists turning left into Davis Bay Road, or stopped for pedestrians, being hit from behind. Solution The MoT identified this intersection for upgrading as part of a safety improvement in this area. As a result, the MoT received both ICBC and Federal Stimulus funding to upgrade this intersection. The upgrade involves the provision of a left turn lane on the highway, as well as the signalisation of the intersection with a northbound advance warning flasher. A north side crosswalk will be provided as part of the upgrade to enable the safe crossing of the highway by pedestrians. A schematic of this upgrade is shown in Section 9. Flume Road Contributing Factors Flume Road is the western most access to Roberts Creek and Roberts Creek Provincial Park. It also is the western access road to the Beach Avenue/Lower Road alternative route for Highway 101 and is used by cyclists. This intersection is therefore of strategic significance in the event highway closure. There is a short, steep incline on Flume Road at its intersection with the highway. This not only slows the pull-off time for motorists, but is also a distraction in that roll-back is a problem, especially for stick shift transmission vehicles. August 2011 Page 21

34 Possible Solutions Reducing the approach incline on Flume at Highway 101 will require extensive earthworks in order to create a level platform at the intersection. This will result in Flume becoming even steeper prior to the platform, and adjacent driveways having steep driveway tie-ins to match the new road elevation. Approach sight distances could also become a problem. In seeking alternatives to this challenging and costly upgrading, just 150 m east of this intersection on Highway 101 is Marlene Road. Marlene Road does not have a steep incline at the intersection of the highway, has a wider cross-section than Flume, is in generally less steep and is straighter than Flume. It is therefore also more suitable for cyclists. Suggesting Marlene Road as an alternative by use of signage is proposed. Similarly, redirecting traffic from Beach Avenue to the highway via Marlene instead of Flume through signage, reduces the amount of through traffic on the 700 m section of Beach Avenue between Marlene and Flume. Henry Road Contributing Factors Henry Road, together with Reed Road, are used by local Sunshine Coast residents as an informal bypass of Gibsons Way. This results in additional turning movements at the Highway 101, Henry Road intersection. Rear-enders, both for vehicles turning left into Henry and right out of Henry are the primary crash types. Land use density begins to increase east of Henry Road. Previously, this bypass route to the ferry terminal was signposted by the Ministry which would have resulted in additional vehicles using this intersection. Henry is a two lane stop controlled intersection and free flow on the highway. A motorist turning left out of Henry has reduced gaps as the eastbound traffic is not platooned in any way, as is the westbound traffic due to the signalized intersections further east. This adds to the delay of right turning vehicles. These right turning vehicles are also entering a westbound traffic flow that is gaining speed as it leaves the Gibsons area, reducing gap opportunities due to their faster approach speed. All these factors combine to increase turning delays of this intersection and higher risk taking by motorists as a result. Possible Solutions Since local residents will continue to use Reed/Henry as an alternative, and the block sizes would result in significant detouring if this intersection were closed, any intervention to upgrade this intersection should be considered. With the change in land use density at this location, from urban to rural, or highway to arterial, a transition feature is suggested. Options include: A signalized intersection; The introduction of a centre raised median and landscaping; or A roundabout could be considered in the long term. Due to the conflicting turning movements, a roundabout is preferred as it safely allows for all turning movements, and the centre island can be used to announce the approaching business district. In addition, the Elphinstone OCP indicates a future link road between a realigned Henry and King Road to facilitate the future development of the area south of the Highway. King Road would then form the fourth leg of the roundabout. It is, however, recognized there are ALR concerns along Henry Road, as well as additional costs if the nearby Chaster Creek is affected. This option presents significant challenges due to topography, existing land use and agriculture. The bypass concept is explored further in Section 9, and seeks to address all these issues. August 2011 Page 22

35 Reed Road Contributing Factors While some of the crashes on Reed Road are also rear-enders related to turning movements, some crashes were due to motorists skipping the stop control at Reed. Highway 101/North Road is free flow at this four-leg intersection. Possible Solutions As discussed for Henry Road, local residents use Henry/Reed as an alternative bypass to Gibsons Way, which is unlikely to stop in future. Also as with the Henry intersection, Reed Road represents a transition point between a rural to a more urban and higher density land use. Traffic travelling westbound from the Langdale area should be required to slow down, not only to accommodate turning movements at Reed Road, but those property accesses further south and up to Gibsons Way. The same applies for northbound traffic, which should continue at a slower speed in this residential section. The pending development of the neighbourhood area in the south-east quadrant of Reed and Payne Road, including Park Road will result in additional traffic at the Reed/North intersection. How to address the Reed Road intersection is included as part of the bypass concept in Section 9. August 2011 Page 23

36 7.4 Regional Growth Strategy and Collaboration In 2007, the SCRD began the Scoping Phase of a Regional Growth Strategy (RGS), which was being developed to manage growth in a sustainable manner. It was intended to promote human settlement that is socially, economically and environmentally healthy, and that makes efficient use of land and other resources. The RGS would have aimed to provide the municipalities and electoral districts with long-range planning direction that benefits the entire region. This involves creating an update of information in conjunction with the Official Community Plans, and potential challenges that the Sunshine Coast is facing due to its population growth. The intent of the first phase of work was to identify recent trends and changes, prepare a set of concerns that could be addressed, determine if there was an agreement between local governments to proceed with a Regional Growth Strategy, and, if so, to identify next steps. The RGS would have covered a 20 year minimum time frame; established regional vision statements; determined population and employment projections; and identified regional actions for key areas such as regional interests, housing, transportation, Regional District services, parks and natural areas, and economic development. It therefore was an important link in the Integrated Transportation Study chain. A map showing representative issues determined from a community engagement process in 2008 is shown in Figure 7.4. Highlighted on the map are key areas already identified related to development, employment, transportation, First Nations, hydro, etc. All of the issues which are relevant to the ITS have been brought into this project, together with additional issues identified. Specific issues noted on the figure include: Approximately 89% of SCRD residents drive or are passengers when travelling to work, so ways to reduce this figure need to be addressed; Travel Demand Management (TDM) strategies; Multi modal opportunities; Opportunities for innovative transit strategies like community buses, street car systems and integrated fare products need to be identified, along with the goal of increased ridership; Investigate ways to integrate and build on different local government trail networks to link communities on a regional scale; and Is commercial land based air transport a viable transportation option? At the time of this Integrated Transportation Study, it was decided that the RGS would not proceed, but that a number of collaborative regional initiatives, such as the ITS, would be pursued. August 2011 Page 24

37 Sunshine Coast Regional District Figure 7.4 August 2011 Regional Growth Strategy Issues and Concerns Page 25

38 7.5 Transportation Ports and Ferry Services BC Ferries There are two principal ports on the Sunshine Coast from a movement of people, vehicles and goods perspective, located at Langdale to the south and Earls Cove to the north of the Highway 101 corridor. BC Ferries operates the ferry service to Langdale from Horseshoe Bay and to Earls Cove from Saltery Bay. This is the only service offering vehicle access to the region, besides private hire barge services. These ports are owned and operated by BC Ferries. Other port related stakeholders include Fisheries and Oceans Canada and the Canadian Coast Guard. Movement to and from the region is, in most cases, dictated by the ferry schedules, with local residents having to plan their trip to and from the region according to when the ferries are running. During interviews undertaken, a complaint about the ferry service schedule was that Sunshine Coast residents are sometimes forced to overnight in Vancouver in order to attend a hockey game, conference or other event, with the associated extra expenses. As outlined earlier, ferry arrivals at Langdale in particular have a significant impact on traffic operations along the corridor. During the summer months, BC Ferries provides additional services. The daily and summer schedules are provided in Appendix C. The daily schedule is operated using only one ferry (the Queen of Surrey or Coquitlam) making a return trip every two hours. To increase this service would require a second ferry. BC Ferries has indicated that the cost to provide the second ferry and the personnel required to operate the additional service is prohibitive, and any additional service is not within their 5 to 10 year plan. Similarly, extending the schedule to include an earlier or later sailing is also not within the 5 to 10 year plan due to the cost of the additional personnel hours Water Taxis Water taxis operate from the Regional District owned docks to the surrounding islands. The Sunshine Coast Regional District is responsible for nine docks that were divested from Transport Canada in They are located as follows: Gambier Island: o Gambier Harbour o Halkett Bay o Port Graves o West Bay Keats Island: o Eastbourne o Keats Landing Sunshine Coast: o Halfmoon Bay o Hopkins Landing Thormanby Island: o Vaucroft August 2011 Page 26

39 7.5.2 Road Network Assessing the road network, Figure 7.4 highlights one of the challenges of the SCRD, that being Highway 101. Highway 101 is a central spine through the study area, hugging the coastline and providing the primary access to the entire region. It starts and ends at port terminals and is the only road classified as a highway, with several roads of all classes taking access off the highway. It therefore carries a high concentration of traffic, serving several trip purposes. Traffic on the highway is characterized by platooning due to ferry arrivals at the terminals, a proportion of which is bypass traffic heading towards Powell River and beyond if northbound, and to Greater Vancouver if southbound. The nature of these transport operations presents an opportunity for the local community of the SCRD to capture as much of this traffic as possible from a commercial perspective. The limited road network along significant portions of the corridor means that the highway also functions as a local road for local communities. This is characterized by the several residential driveways that take access directly off the highway. So while the primary function and classification of the road is highway, the highest order of classification, the secondary function and classification of the same road is local, the lowest order of classification. This leads to varying points of view in terms of highway upgrade priorities. For example, local communities might want specific intersection upgrades to serve their needs, whereas other upgrades would provide a more regional benefit, such as widening the highway shoulders to accommodate cyclists. There is also the issue of a Highway 101 bypass. Previous studies reflect alignments running from ferry to ferry (Langdale to Earls Cove) located inland approximately following a hydro corridor. The approximate alignment is shown in Figure 7.5. From a planning perspective such a bypass makes sense, however this is not a priority of the Province given more pressing road improvement requirements in many other parts of the Province where there are higher traffic volumes. Many local communities and stakeholders also stress this is not a priority. More practically, the bypass needs to be broken up into priority packages, such as around the higher density areas at Gibsons and Sechelt. This is discussed in more detail in the next section. Gibsons and Sechelt have also conducted their own road network studies, and the respective OCP s all contain road network aspects. While the ferry-to-ferry bypass is considered a long term option, there are several issues and concerns that still require addressing: The alignment should avoid residential and agricultural properties Topography constraints Crown land Property acquisition Funding sources When determining a future alignment, extensive and thorough community consultation will be required. August 2011 Page 27

40 Figure 7.5 Long Term Ferry to Ferry Highway Bypass Alignment The Gibson Bypass Rationale The 2006 SCRD Population Census reflects a population distribution as shown in Table 7.3. Table Population Census Population (2006) Municipal Areas District of Sechelt 8,454 Town of Gibsons 4,182 Sechelt Indian Government District 827 Electoral Areas A - Egmont/Pender Harbour 2,624 B - Halfmoon Bay 2,558 D - Roberts Creek 3,307 E - Elphinstone 3,552 F - West Howe Sound 2,235 Total 27,739 August 2011 Page 28

41 Dividing the corridor into sections, we have: Gibsons, Elphinstone, West Howe Sound: 9,969 people, or 36% of the SCRD Remainder of corridor further west: 17,790 people, or 64% of the SCRD These population figures show that the majority of local trips to and from the ferry terminal at Langdale are through trips in Gibsons and Elphinstone, given their proximity to the terminal. This is in addition to the tourist through trips. Expected future population growth to 2036 is as shown in Map 2 of the Regional Growth Strategy, included here as Figure 7.6. This shows the largest area of expected growth to be in the District of Sechelt, with other growth areas at Halfmoon Bay and at Roberts Creek, also west of Gibsons and Elphinstone. This suggests that in future up to 70% of the population could be living west of the Gibsons and Elphinstone area, resulting in even more through trips. The rationale therefore exists for a road to bypass both Gibsons and Elphinstone, especially given that private vehicles make up 89% of mode share in the SCRD Previous Studies There have been several studies done for a Gibsons Bypass, some extending only as far as Payne Road from Stewart Drive and others going so far as extending the bypass all the way to Egmont. A ferry arrives at and departs from Langdale every 2 hours in the non-summer months, and intervals of only 40 minutes at certain times in the summer months (July and August). Ferry traffic must pass through Gibsons and Elphinstone, dissipating as it moves westwards towards Sechelt. The impact of this ferry traffic (both to and from the terminal) is exacerbated due to the land use development in Gibsons and Elphinstone. Besides the residential components, the commercial centers on Gibsons Way and at the Gibsons Harbour results in a mix of local (background) traffic and ferry traffic. The ferry traffic tends to be predominantly through traffic, while the local traffic is characterized by short trips, possibly with several turning movements on the road network. These conflicting trip purposes result in traffic congestion, with each regarding the other possibly as a nuisance. Land use beyond Elphinstone towards Sechelt is predominantly residential, resulting in significantly less conflicting trip purposes. Extending the existing Sunshine Coast Highway from Steward Road to beyond this conflict zone appears justified, however must be put into perspective considering the frequency, or infrequency, of these conflicting traffic occurrences (outside of peak season, every two hours; in the two month peak season, maximum every 40 minutes). The report, Gibsons Bypass Extension, Planning and Design Study, October 2005, concludes that a bypass connection to Payne Road is preferred to a connection to Henry Road. This study does however start on the assumption that the bypass will be extended from Stewart to beyond Gilmore Road, based on the findings of a study completed in 1995 by Binnie, Gibsons Bypass Extension Study. In other words, a do-minimum alignment was not reconsidered. Do-minimum alignments are particularly relevant given the sporadic surge nature of the traffic conflicts, and include consideration of such alignments as Cemetery Road or Reed Road. A further motivator for a do-minimum alignment is that in the 15 years (1995) since the Binnie report and subsequent Crippen detail design of the proposed bypass, funding constraints have continuously prevented any construction going ahead, and these constraints are likely to remain in the August 2011 Page 29

42 foreseeable future. What funding is available is also balanced against the requirement for the entire 80 kilometer long corridor Upper Gibsons Neighbourhood The Town of Gibsons commissioned a study completed in October 2007 entitled Upper Gibsons Neighbourhood and Strategic Servicing Plan. This report evaluated the impact of the proposed development of the land bordered by Reed Road to the north, Payne Road to the west and approximately Venture Way and Sunnycrest Road to the south and east respectively. The land-use plan for this neighbourhood is shown in Figure 7.7, and the Town of Gibsons has recently approved the first subdivision in the north-western section. The traffic analysis undertaken in that study recommended new and extended left turn lanes at the Payne Road, Highway 101 intersection to accommodate the traffic generated by the development. However, this study assumed Gibsons Way was a four lane crosssection, whereas in May 2009, Gibsons Way was changed to a two lane cross-section with cycle lanes and turning lanes. It is therefore recommended that this study be updated to reassess the road network impacts of the Upper Gibsons Neighbourhood due to this critical network change Way Forward The need for a bypass is evident, and in Section 9.6 of this report (under the Integrated Transportation Plan section), further options and recommendations are presented. These options are made even more effective when implemented in conjunction with other travel demand management techniques and transit service improvements proposed as part of the ITP The Sechelt Bypass In 2009, the District of Sechelt prepared a Transportation Master Plan (Bunt and Associates, 2009). That study included a capacity assessment of Highway 101 through Sechelt, from Field Road to West Sechelt. The study concluded that the section of highway through the Davis Bay and Selma Park area would have a volume to capacity ratio (v/c ratio) of greater than 0.8 by 2018, and a v/c ratio of greater than 1.0 by It is generally accepted that a ratio of 0.85 is a failing condition. This section of highway is also characterized by narrow shoulders, especially between Davis Bay Road and Selma Park Road, private driveways, no passing opportunities and several horizontal curves. All of these reduce highway mobility and safety. Combined with this is the beach and tourist area in Davis Bay, where, especially in summer months, there is an increase in pedestrians on the highway. The rationale for a bypass that would separate local and through traffic and mitigate several of these issues therefore exists, and will be explored further in Section 9. August 2011 Page 30

43 Sunshine Coast Regional District Draft Figure 7.6 August 2011 Regional Growth Strategy Population Growth Areas Page 31

44 Sunshine Coast Regional District Draft Figure 7.7 August 2011 Land Use Plan, Gibsons OCP Page 32

45 7.5.5 Traffic Congestion and Roadway Infrastructure A recent road modification in Gibsons saw the previous four-lane Gibsons Way converted to two lanes. The primary reason for this was the need to traffic calm the road. This has, however, resulted in restricting or removing access to the many businesses on Gibsons Way and residents now complain that they cannot access their church s parking for example as the upgrade now prevents this turn. A recent public protest is evidence of some of the community sentiment. Figure 7.8 Restricted Driveway Access on Gibsons Way Traffic back-up on North Road at Gibsons Way results increasingly in residents from the region using Reed Road and Henry Road to bypass this intersection. Speeding on this bypass is evident. This matter will be addressed as part of the Gibsons Bypass evaluation in Section 9.6. A significant back-up of ferry traffic is evident at the single left turn lane at Stewart Road, where the Sunshine Coast Highway (Highway 101 bypass) terminates. Up to this intersection, the Sunshine Coast Highway is a dual carriageway directly accessing the ferry terminal. Even though this left turn movement is a yield control, with virtually no opposing traffic, it is a 90 degree bend and has to be negotiated slowly. Figure 7.9 Traffic Back-up on Sunshine Coast Highway at Stewart Traffic congestion is also evident at the intersection of Highway 101 and Wharf Road in Sechelt, where there is a signalised left turn in the highway alignment. August 2011 Page 33

46 Figure 7.10 Traffic Congestion at Highway 101 & Wharf, Sechelt In terms of strategic road infrastructure, further towards Sechelt, there is only one bridge crossing Chapman Creek just east of Sechelt at Davis Bay. This makes the areas west of Sechelt vulnerable in the event of a problem on this bridge, or should this bridge suffer structural damage. The Chapman Creek Flood Assessment Report (2010) prepared for the District of Sechelt included recommendations highlighting the urgency to upgrade this bridge. A possible additional river crossing will be investigated as part of the ITS when examining alternative routes. These congestion locations and infrastructure requirements will be addressed in Section 9, the Integrated Transportation Plan, in conjunction with transit service upgrade options, cycling and pedestrian facility considerations, Travel Demand Management opportunities, etc. so as to encourage a move away from private vehicle usage Traffic Safety As one travels from Halfmoon Bay towards Earls Cove, the road becomes increasingly windy with many sharp bends and a recommended speed of 30 km/h in some places. The roadway is very unforgiving with steep slopes immediately adjacent to the roadway with little or no shoulder. Figure 7.11 Typical Sharp Bend Warning Sign on Highway Some of the key intersections along the corridor in the more rural areas are located on horizontal curves with limited sight distance. Many also do not have deceleration lanes, which is a particular risk on sections with posted speeds of 80 km/h. There are also limited passing opportunities in some sections. Other intersections do have very good left turn lane provision, making for safer turning. August 2011 Page 34

47 Figure 7.12 Intersection on Bend with No Deceleration Lane The southern Redrooffs Road intersection is at a particularly skew angle, forcing motorists exiting this road onto the highway to look back over their shoulder to see oncoming vehicles. To compound this hazard, vehicles on the highway are approaching at high speed down a steep gradient. Figure 7.13 Redrooffs Road Intersection A very local example of a high risk area in Gibsons is in the vicinity of the School Road/Marine Drive intersection with Gibsons Way a popular tourist area. The four-way intersection has stop controls on only three-legs, has pedestrian crosswalks on all four legs, including the leg without the stop control, is located very close to a bend in Marine Drive which is also a busy pedestrian area, and to compound the matter, Marine Drive has several driveways on it. Improving vehicle and pedestrian safety in this area is important in the ITS process. Even though it is a very local matter, it does have a local resident and tourist impact. It is understood that Town of Gibsons has committed to improving this intersection over a series of phases. August 2011 Page 35

48 Figure 7.14 Unsafe Intersection and Surroundings Another example is the intersection of North Road and Gibsons Way/Highway 101. The high volume of ferry traffic traveling through this intersection is complicated by the number of pedestrians using the crossings, with a school and church located on two of the quadrants. Recommendations to address these traffic safety issues are presented in Section 9, the Integrated Transportation Plan. Figure 7.15 Pedestrian Conflicts at North Road, Gibsons Way Intersection Alternative Route Planning Highway 101 is a critical component of any emergency plan for the Sunshine Coast. Closure of a section of the highway can result in part of the region being cut off, although this not an unusual situation for many communities in the Province where topography limits road alignment alternatives. To determine the extent of this risk, an alternative route plan is desired. Sections of alternative routes currently exist. Note that no criteria are given to the alternative route sections in terms of cross section, geometry, continuity, directness, etc. This is because these links would only be temporarily used in the event of a highway closure as a means to bypass the incident, and only for the duration of that closure. As a first step, identifying and communicating these alternative routes to relevant emergency service personnel is necessary, before options to extend these routes throughout the region are considered. August 2011 Page 36

49 7.5.8 Transit BC Transit The Sunshine Coast Transit System operates under a funding agreement with BC Transit and the current service operated extends from Langdale to Halfmoon Bay. The transit services collectively carry about 475,000 passengers per year, and in terms of rides per hour, is one of the highest productivities among the BC Transit systems and the sixth highest in Canada. With BC Transit taking a new longer term approach to transit planning across the province, the five year Transit Business Plan that was completed in 2006 will be replaced by Long-term Transit Master Plans or Regional Concept Plans, depending on community size and geography. These plans will outline a 25 year vision for transit and aim to steer transportation investment and land-use to facilitate an increase in the amount of people using transit. These plans will prioritize both operational and capital expenditure within a given community. At the time of writing, a timeline for when the long term planning will be initiated with the SCRD was not yet known. The main conventional transit route, Route 1, operates from Sechelt, via Roberts Creek and Gibsons, to the Langdale ferry using accessible buses with wheelchair ramps. This service is augmented by local routes that operate to West Sechelt, the Sechelt Arena and Halfmoon Bay, Routes 2, 3 and 4 respectively. These routes are shown in Figure Figure 7.16 BC Transit Routes Map There is also a handydart service for those people with disabilities, operated by Sunshine Coast Transit. Foot passengers on the ferry wishing to visit Gibsons or anywhere else on the Sunshine Coast have the option to take a BC Transit bus at the Langdale ferry terminal, buying a one-way ticket on the bus. According to the local Visitor Centre in Gibsons, some visitors find it costly having to buy a one-way ticket before buying a day pass ticket, especially for families. Selling bus day passes on the ferries or on the buses would address this. In Sechelt, the Visitor Centre requested that the bus schedule be adjusted to better suit some people commuting from Gibsons. The example cited was the Route 1 arrival time in Sechelt of 9:16 in the morning, which is not suitable for a person starting work at 09:00. This adjustment is however difficult to achieve as it is a function of the round trip travel August 2011 Page 37

50 time from Sechelt to Langdale and back. Similarly for a person finishing work in Sechelt at 4:15 or 4:30 pm, the next departing bus to Gibsons is at 5:05. This forces some people into their vehicles, with the resultant greenhouse gas emissions. Small bus schedule changes, if possible, could address these situations, and thereby attract more daily commuters, which in turn offers a more secure income stream. There are frequent bus stops (over 30) along the corridor where the buses operate. Some of these stops have shelters and seating while others have neither seating nor shelters, which situation is unavoidable given that the number of customers using some of these stops does not warrant the expenditure. There are however some bus stops that are located at a ditch for example, making it inaccessible without walking on the highway. At night, passengers waiting for the bus at some stops have to look out for the bus and push a button to flash a light to alert the driver. While this system has proven successful, it places some responsibility on the passenger to alert the driver, which could disadvantage less attentive passengers. Solar powered lighting at some of these shelters might be considered, possibly funded by companies in return for advertising space at the shelter. It is understood that Ministry regulations prohibit advertising on the highway and therefore on bus benches or at shelters. If this advertising is located in such a way so as to not distract highway drivers and be deemed acceptable by the Ministry, it does present a reliable funding opportunity. Figure 7.17 Examples of Bus Stops Other Bus Services Bus services do not cover the full length of the Highway 101 corridor, with only Malaspina Coach Lines travelling once a day southbound in the morning and northbound in the evening between Powell River and Vancouver International Airport. A second bus operates in the spring and summer months. While on the ferry, the bus driver sells August 2011 Page 38

51 tickets to ferry passengers from a bus ticket sales desk, and announcements are made by BC Ferries informing passengers where to buy tickets. Due to this service only running once a day, it is not a viable commuter option. Plans are at an advanced stage to introduce a new, privately operated, scheduled community bus service between Egmont and Sechelt on Wednesdays and Saturdays only. This service, using a 20 seater bus, would depart from Madeira Park, travel up to Egmont via the Earls Cove ferry terminal, before returning to Madeira Park and proceeding to Sechelt. After a two-hour layover, the bus would follow the same return route. It is initially planned to run this as a trial service for six to 12 months. The School District offers a school bus service under contract with a local operator. There have been suggestions to make this service available to the local community, however, due to security and other concerns, this is not possible when these buses are transporting school children. Outside of the school related operations, these buses could be made use of, but only under contract with the operator Cyclists The need for local bicycle and pedestrian infrastructure in the SCRD has been recognized since the early 1990 s when a local service bylaw was approved to provide for the construction and maintenance of bicycle pathways throughout the region. It was projected that this bylaw would generate up to $100,000 per year towards the development and maintenance of bicycle/pedestrian routes, and it continues to generate approximately $100,000 per year for bike and walking paths in Areas B, D, E and F. In addition, the SCRD has received Provincial gas tax revenue for bike and walking paths in each Electoral Area for several years. A regional study (March 1995) determined the following strategic objectives: development of a safe and efficient shared use pathway network; a ferry-to-ferry bicycle route with pathway links to communities and other destinations; and cycling oriented recreational opportunities for locals and visitors. A subsequent study (October 1995) and a Gibsons Trail and Bicycle Network Master Plan (2001) recommended a network of facilities, policies and an implementation strategy. Some progress has been made on implementing the recommendations from this study, but a comprehensive network is still lacking while interest in cycling, walking and hiking by locals and visitors is increasing. Previous Bicycle and Pedestrian Plan studies for the corridor (1995) identified the need for a safe and efficient network providing for bicycle transportation and pedestrian use. The main focus of this network is a ferry-to-ferry bicycle route with connections to the population centres along the corridor. While some progress has been made on this initiative (localized shoulder widening, bike lanes and racks on buses), for much of the highway no facilities are provided for cyclists or pedestrians. The provision of transportation facilities and services in a sustainable and regional manner must consider not only motor vehicle, truck, and bus traffic, but also pedestrian and cyclist traffic. As with the other modes being considered, the focus of this study is on utilitarian pedestrian and cyclist traffic. The scope does not specifically include recreational route or trail identification. Recreational use studies have been conducted for the Town of Gibsons (Gibsons Parks 2020 Master Plan), for the Sechelt area in July 2006 (Parks and Open Spaces Master Plan) and for the Regional District (Parks and Recreation Master Plan 2004). August 2011 Page 39

52 Recognizing that cyclists and pedestrians sometimes require different and separate facilities, particularly in higher trafficked urban areas, there may be situations in the project study area where both sets of needs can be met with a single facility. A key element of the Integrated Transportation Study (ITS) is to feed into the Regional Energy and Emissions Sustainability Plan process and to help shape Greenhouse Gas reduction targets and policies. The enhancement of the cycling and walking environments contributes to this element. An initial review of the corridor indicated that: On-road cycling is not actively promoted as a mode of transportation or recreation. Walking and cycling are difficult along the highway corridor. Existing alternatives to the highway are neither advertised as cycling routes, nor are any distances marked for routes away from the highway. Infrastructure which has been provided for pedestrians and cyclists is often discontinuous. MoT focuses on widening shoulders on Highway 101, while the SCRD focuses on building shoulders and other cycling facilities on other roads in the rural electoral areas. Better coordination is needed between MoT and the SCRD on the construction and maintenance programs for cycling facilities, including shoulders. At the same time, population growth and densification trends indicate that the SCRD will continue to be a popular residential and summer home destination. Appropriate management of this growth and densification to ensure that alternative transportation opportunities exist requires intervention in the near term. Such management will work to ensure private vehicle use does not become further entrenched. It will also move to curb the increase in greenhouse gas emissions resulting from population growth and densification. Many of the earlier studies have investigated the possibility of a bypass route or alternative to Highway 101. The section of the highway between North Road in Gibsons and Redrooffs Road north of Sechelt has a higher than average collision rate, indicating that an alternate route could be beneficial. It is not known what percentage of these collisions involve pedestrians or cyclists. The existing alternate routes are the routes currently used by cyclists and are often the ones leading off the highway into the smaller urban settlements along the corridor. The study entitled Highway 101 Safety and Operational Review North Road to Redrooffs Road indicates that the provision of a sidewalk and wider paved shoulders would provide significant safety and comfort benefits for pedestrians and cyclists. A summary of pedestrian and cycling issues is contained in the SWOT analysis presented later in this report. There are examples where advances have been made as regards cycling and pedestrian facilities. In addition to bike lanes exiting the Langdale ferry terminal and some localized shoulder widening and trail development, cycling is encouraged in the SCRD by the provision of bicycle racks on the full-size buses operating between Sechelt and Gibsons/Langdale and on the minibuses serving West Sechelt, the Sechelt Arena and Halfmoon Bay routes during daylight hours only. Many of the bus stops indicated bike facilities available on the buses. August 2011 Page 40

53 Figure 7.18 Bicycle Loading Bus Stop Cycling and walking are encouraged with the upgrade of Gibsons Way in Gibsons from 4 lanes to 2 lanes to allow for bicycle lanes, however, these are not continuous. There are many other sections along the corridor where there has been some local shoulder widening appearing to allow for cyclists, however, this was neither formally indicated nor continuous. There is a separated multi-use pathway that runs adjacent to Highway 101 between Roberts Creek Road and Pell Road. Figure 7.19 Bicycle Facilities There are many identified bike and hiking trails throughout the Sunshine Coast, just inland of Highway 101, and trails are located in the Dakota Ridge area north-east of Sechelt. The SCRD has recently completed a major off-road multi-use trail from Halfmoon Bay to Egmont and intends to eventually extend the train to Langdale. The Sunshine Coast Trails Society is also currently planning future trails on Mount Elphinstone. There are however no bicycles available for hire in Gibsons or Sechelt. If one compares this to Victoria on Vancouver Island, where bikes are available for hire in several locations, the Sunshine Coast could benefit substantially as a cycling destination if availability and general facilities were improved and cycle lanes made more continuous Pedestrians For much of the highway, there are no facilities provided for pedestrians. Within Gibsons and Sechelt, there are opportunities to create pedestrian walkways to further enhance the village and rural flavour of the Sunshine Coast. At present, in several locations in the region and along the Highway 101 corridor, pedestrians can be observed walking on the highway or on side roads due to the lack of pedestrian sidewalks. On the corner of Mason Road and Norwest Bay Road for example, where a school is located, pedestrians walk in the roadway. August 2011 Page 41

54 Figure 7.20 Pedestrians on Highway 101, Gibsons Figure 7.21 Pedestrians Walking in the Roadway, Sechelt Air Transport The Sechelt District Airport is located at the end of Field Road just south of Sechelt and very close to the Regional District offices. The airport has a runway measuring 2400 feet, restricting the size of aircraft that can use the airport. Sechelt has issued a proposal call to lengthen the runway to 4000 feet and widen it, and install runway lighting. The timing of this extension is not yet known. Figure 7.22 Sechelt District Airport An obstacle to the land-based air travel is landing fees at the departure airports compared to water-based air travel. For example, landing at Vancouver International Airport costs a minimum of $100 vs. no landing fees to land a float plane in the Burrard Inlet in Vancouver. August 2011 Page 42

55 In general, a land-based airport should offer a significant economic stimulus opportunity to a region, however, this does not appear to be exploited in the Sunshine Coast Regional District. Helicopter services are available to the region, with the advantage that helicopters are far less restricted in their landing locations, but are an expensive option for travelers. The majority of air travel is via float plane services operating from two terminals in the Sechelt Inlet in Porpoise Bay. Services are operated by Tofino Air and West Coast Air. Tofino Air provides flights between Sechelt and: Nanaimo; Vancouver International Airport (South Terminal) (YVR); and Victoria (Patricia Bay). In the spring and summer months, there are four return flights per day to Nanaimo, and one return flight to Victoria on Fridays, Saturdays and long weekend Mondays. There is one return flight daily to YVR. West Coast Air provides flights between Sechelt and: Nanaimo; Richmond; and Jervis Inlet (multiple destinations). There are three return flights per day to Nanaimo and Richmond. There are also three flights departing Sechelt and travelling to places such as Earls Cove, Madeira Park, Thormanby Island and Ruby Lake, as well as more remote locations such as Chatterbox Falls, Glacier Creek and Deserted Bay. Figure 7.23 Sechelt Inlet Float Plane Dock Marine Transport The report, Sechelt Marine Access, Sechelt Economic Development Partnership, May 2005, investigated the options for marine access to the Sechelt area. A marina was proposed at Selma Park, as well as at the Sechelt Public Pier. Facilities for a fast ferry type service and 190 ft. cruise ships were also considered at the Pier. At the Pier, a rubble mound breakwater option was too expensive, and a floating breakwater was only feasible in the summer months due to wave and wind restrictions. Under storm conditions, berthing dock options would also be restricted. August 2011 Page 43

56 7.6 Demographic Trends and Land Use Demographic and land use trends are important in developing an appropriate, responsive Integrated Transportation Strategy. One key demographic trend is the rate of population growth. The SCRD has a current population of approximately 28,000 residents. According to BC Stats 1, the SCRD is expected to sustain past growth, adding approximately 7,000 new residents by But the rate of growth is projected to decrease in coming years, dropping significantly by Due to significant decreases in the natural growth rate beginning around 2020, the rate of population growth is expected to decrease annually thereafter. However, as the SCRD study notes, these projections are subject to change and may not come to pass. Another key trend is where the population growth is happening, i.e. location and density shifts. According to BC Stats again, density is expected to steadily increase over the next 28 years, to reach 9.6 persons per sq. km by 2036, over double the density in the mid 1980s. However, the density will not be evenly spread throughout the SCRD corridor. The OCPs for the various electoral areas reveal that most of the future residential buildout capacity is focused on just three areas: Sechelt, Electoral Area A (Egmont- Pender Harbour) and the Town of Gibsons. While the total combined OCP build-out population capacity is 71,155, these three areas represent almost 50,000 of the total build-out capacity. What this means is that much of the population growth could be accommodated in Sechelt, plus some in Gibsons, thus generating substantial additional traffic pressure on the highway linking these areas to the Langdale ferry terminal. Sechelt has, by a significant margin, the most opportunity for growth in the SCRD, and would account for 43% of the total SCRD population if the total build-out were reached. It should be noted that these projections are based on current OCP policies and actual population growth may be different depending on economic and market trends. If these land use growth and densification trends come to pass, there will be increased traffic on Highway 101, especially the section that passes through Elphinstone (Area E), Gibsons and West Howe Sound (Area F) (i.e. between Highland Drive and the Langdale bypass/stewart Road), since all vehicles travelling to/from the ferry (the only way to access the Sunshine Coast by vehicle) must eventually traverse this section of the highway corridor. What this means is that while the majority of population growth is going to occur elsewhere up the corridor in Sechelt and Pender Harbour (the traffic origin/destination), the increased traffic impacts are going to be experienced most acutely by those working and living in West Howe Sound/Elphinstone/Gibsons. This observation supports the case for extending the Sunshine Coast Highway bypass beyond Gibsons towards the west, at least as far as Henry Road and possibly as far as Highland Drive. Another ITS-relevant land use factor is noted in the Elphinstone and Town of Gibsons Official Community Plans. There are five relatively small Comprehensive Development Cluster Housing Areas planned for Elphinstone and two large neighbourhood plan areas, Upper Gibsons and Gospel Rock identified. Through rezoning, new development may be considered that allows a density bonus creating smaller parcels and multi-family housing. All these Neighbourhood Plans and Comprehensive Development Cluster Housing Areas are located south of Harry Road with a total build-out of over 1,300 dwellings. This may also support the case for extending the Sunshine Coast Highway bypass beyond Gibsons towards the west and connecting it to a feeder road into these areas (such as 1 Data and Trends Related to Growth Issues on the Sunshine Coast, February 2009, SCRD Planning and Development Division August 2011 Page 44

57 King Road). This would enable additional new traffic to/from these growth areas to be directed onto the bypass to the ferry terminal, rather than through Gibsons. As the SCRD Data and Trends Update Report 2 notes, there is a direct relationship between land use planning and transit services. Rural areas that the SCRD governs have dispersed lower densities, making it difficult for residents to access transit, or for transit service to be viable. Higher density developments improve access to transportation and encourage pedestrian-friendly town centres. High ridership helps to reduce greenhouse gas emissions. Therefore, land use plans that focus future residential development on concentrated areas and higher densities will support future transit improvements. Conversely, future transit improvements (or any substantial reduction in greenhouse gas emissions from vehicles) are unlikely to be significantly viable unless there is a shift towards relatively higher density land use patterns along the corridor. It has been observed that increasing residential capacity around the Gibsons Way/Highway 101 corridor through Gibsons and Elphinstone electoral areas, coupled with an extension of the Sunshine Coast Highway bypass (at least as far west as Henry Road), will reduce through traffic pressure on the highway through the Elphinstone Electoral Area. Extensive new land development is evident along the corridor. Developers are taking advantage of the waterfront opportunities both adjacent to the highway in some areas, in the vicinity of Norwest Bay Road for example, and closer to the water s edge in other areas. Primarily residential developments, some take access directly off the highway, thereby affecting highway mobility. A large Eco Village had been planned on Field Road near Sechelt, however this development seems to have ceased, and further north near Madeira Park there is a substantial site clearance to the east of the highway, indicating a future residential development. There is a high percentage of holiday homes in the region, and home-based business is also prominent. Both these factors influence a dispersed pattern of traffic and transportation operations in the region, and both contribute to the high percentage of private vehicle use. There are several retail areas in Gibsons with shopping centres on Gibsons Way. In Sechelt, the Tsain-Ko Village Shopping Centre in located next door to the St. Mary s Hospital and Trail Bay Mall in Sechelt. Light industry is evident in both Gibsons and Sechelt, with heavy industry such as Port Mellon Howe Sound Pulp and Paper mill employing over 500 people. The advent of big box stores, such as Canadian Tire and London Drugs, on the Sunshine Coast will begin to influence local resident travel patterns by curbing the need for residents to travel to Vancouver to go to these types of stores. The consequence of this will be increased intra-regional traffic, depending on the locations of these stores. 2 SCRD Update Report, A Summary of Issues Identified in 2002 & Updated Data & Trends Related to Regional Growth Issues, July 2008 August 2011 Page 45

58 7.7 Sustainability Balancing social, economic and environmental factors are keys to sustainability. The SCRD has identified a number of common principles to achieve sustainable development or community sustainability. These principles include, and can be found at Dealing transparently and systemically with risk, uncertainty and irreversibility. Ensuring appropriate valuation, appreciation and restoration of nature. Integration of environmental, social, human and economic goals in policies and activities. Equal opportunity and community participation/sustainable community. Conservation of biodiversity and ecological integrity. Ensuring inter-generational equity. A commitment to best practice. No net loss of human capital or natural capital. The principle of continuous improvement. The need for good governance. Promoting active transportation translates to a public health benefit, both from the reduction of greenhouse gases and the health benefits of physical fitness. Transportation has a significant influence on two of Health Canada s key health determinants physical environment and personal health practices. As components of these determinants, the factors tied most closely to transportation are air quality, climate change, safety, and physical activity. The focus in the preparation of the Integrated Transportation Plan is to build on the studies and initiatives already undertaken, incorporating cyclist and pedestrian needs into the overall plan, and identifying key strategies which will increase modal split by reducing reliance on the private automobile. An economic factor to be mindful of is that some businesses rely on pass-by traffic for business. Bypasses which remove through traffic from communities can have a significant negative impact. At the same time, areas deemed too busy can influence where local residents do their shopping, etc. The need for a balanced approach is therefore evident. August 2011 Page 46

59 8.0 SWOT Analysis 8.1 Overview A SWOT Analysis is a strategic planning tool used to audit an organization, individual, or in this case, a region and its environment. SWOT stands for strengths, weaknesses, opportunities, and threats. Strengths and weaknesses are internal factors. Opportunities and threats are external factors. It is often the first stage of a planning process and helps one focus on key issues. It involves specifying the objectives of the project and identifying the internal and external factors that are favorable and unfavorable to achieving that objective. The aim is then to maximize the potential of the strengths and opportunities while minimizing the impact of the weaknesses and threats. Table 8.1 provides examples of questions to ask when preparing a SWOT Analysis, as well as the subsequent strategic questions to drive the analysis towards a set of outcomes and actions. Strengths (Internal) What do we do well? What unique resources can we draw on? What do others see as our strengths? (Within our control) Action: How can we use each Strength? Opportunities (External) What good opportunities are we open to? What trends could we take advantage of? How can we turn our strengths into opportunities? (Identify them by Timeframes if possible/relevant) Action: How can we exploit each Opportunity? Weaknesses (Internal) What could we improve? Where do we have fewer resources than others? What are others likely to see as weaknesses? (Which areas can we improve) Action: How can we address each Weakness? Threats (External) What trends could harm us? What is our competition doing? What threats do our weaknesses expose us to? (Classify by seriousness and/or probability of occurrence) Action: How can we defend against each Threat? Table 8.1 SWOT Analysis Process 8.2 SWOT Analysis Objective For the purposes of the ITS, this SWOT analysis identifies strengths, weaknesses, opportunities and threats covering aspects in the SCRD that might impact and affect transportation, including the road network, traffic volumes, ports, transit services, modal split (private vehicle, trucks, bicycles, pedestrians), demographics, land use, planning, sustainability, etc. Ways to exploit strengths and opportunities will be discussed and ways to mitigate weaknesses and threats will also be strategized within the context of the ITS. 8.3 SWOT Analysis Within the context of the preliminary assessment and findings (Section 7), the SWOT Analysis was undertaken firstly considering SCRD-wide factors, and subsequently each municipality and electoral district were assessed independently. This was to ensure that issues unique to one area that could affect the district as a whole were not overlooked. In order to retain the strategic focus of the Integrated Transportation Study, these factors were then combined into three main groupings, namely: August 2011 Page 47

60 Entire SCRD Transportation and Traffic Cycling and Pedestrian Land Use and Development The resultant strengths, weaknesses, opportunities and threats are presented below Strengths (Internal) Entire SCRD: Sunshine Coast is easily navigable due to dominance of Highway 101 corridor Prevalence of Home-Based Businesses reduces traffic demand on road network Some sections of Highway 101 have substantial alternative route sections with several connections back to the highway. This is particularly evident in Gibsons, Sechelt and Roberts Creek. Transportation and Traffic: Major road network is linear Existence of an airport and seaplane base Ferry to ferry and other through traffic necessitates a District corridor Outside of ferry traffic influence, traffic volumes are generally low, with focal points on Highway 101 in Gibsons and Sechelt A form of a bypass at Gibsons (location and length to be determined) is generally accepted Gibsons, SCRD and Sechelt OCPs all have clearly defined road networks Development concentration and road networks enable a transit service to operate in Sechelt Cycling and Pedestrian: Cycling and pedestrian network plan established (although not yet fully implemented) Separated multipurpose pathway (started) Waterfront areas in Gibsons and Davis Bay encourage pedestrian and cycling activity Land Use and Development: Concentrated urban growth in limited pockets supports alternative travel modes (walking, cycling, transit) Proposed new residential growth is primarily focused in just three areas: Gibsons, Sechelt and Pender Harbour The diverse land use and greater population in Sechelt gives Sechelt a more substantial tax base than the rest of the district Weaknesses (Internal) Entire SCRD: Reliance on the ferry service. Ferries are the only way for vehicles, goods, cyclists and pedestrians to access the Sunshine Coast, with limited barge and air services being alternatives Disproportionate reliance on private vehicle typical of rural areas Limited number of scheduled ferry sailings per day Adherence to ferry schedule, with early and last sailing overloading No regular separate goods movement corridor, be that road, rail or marine (barge) based except in relation to the forest industry No rail option August 2011 Page 48

61 Limited funding for transportation infrastructure development Different jurisdictions are responsible for their local road networks and have different priorities. Responsibility defaults to MoT outside Sechelt and Gibsons Lack of funding for capital projects Major road network serves different needs for different stakeholders/ constituencies, which are potentially in conflict: local vs. commuter vs. seasonal tourist vs. commercial The resultant dependency on private vehicles with limited transit opportunities, prevents significant GHG emission reduction options Transportation and Traffic: Concentration of traffic onto one road with no route choices along many sections Limited road network results in mix of through and local traffic There is an inconsistent road network Sections of highway have no alternative route, or alternative route is long with no highway connections Short airport runway limits commercial advantage of the airport Limited float plane opportunities (only located at Sechelt inlet) Ferry terminal location results in substantial through traffic closer to the terminal Some highway intersections require upgrading to improve safety (angles, sight distance, approach gradients, acceleration and deceleration lanes, turning lanes, inconsistent speeds, etc.) Highway north of Halfmoon Bay is very windy with sharp bends and limited opportunity to improve the highway alignment due to topography constraints Surrounding islands have no vehicle access, and are only accessible by water taxi or private craft Cycling and Pedestrian: Cycling is not publically promoted as a mode of transport or recreation Discontinuous cycling network Existing sections of cycle network have no way-finding signs Besides off-road recreational trails, all cycling routes share the road with other traffic Few pedestrian facilities along highway Pedestrian facilities along alternative routes are not continuous Shoulders of less than optimal width Land Use and Development: Topography (steep slopes / rivers / ravines) disperses development opportunities Extended geographical scope corridor is spread out and stretched over very low density sections Highest population concentration in the District of Sechelt, almost equal to that of the Town of Gibsons, Elphinstone and West Howe Sound combined Low density, strip development along corridor limits opportunity for an effective transit system and transit infrastructure investment Smaller development pockets must travel to larger development areas for basic necessities and amenities. These trips are generally private vehicle based Home based business does not require commercial centers, thereby reduces demand for transit, while being private vehicle dependent High proportion of vacation homes reduces the viability of implementing a transit service From Sechelt north-westwards there is very limited development on the highway, with marinas having generally only a single access road off the highway August 2011 Page 49

62 The narrow gap between the Coast of Georgia coastline and Porpoise Bay, combined with the land use development, prevents there being a clearly defined bypass route around Sechelt, forcing all traffic to pass through business centre of Sechelt Almost all new and proposed development has to be accessed from the same highway, putting further pressure on this corridor Opportunities (External) Entire SCRD: Substantial increase in promotion of the Sunshine Coast as a tourist destination locally, provincially, nationally and internationally Improved bicycle routes and better pedestrian facilities could enhance tourism levels and use of non-motorized transportation modes Protect Gibsons bypass and encourage adjacent land development thereby creating more balanced demand on bypass route versus only ferry traffic influence Introduce a passenger ferry service to/from Vancouver/Sechelt Opportunity exists for high impact, local, site specific improvements with modest capital expenditures (e.g. intersections, bus stop facilities, crosswalks, signage, etc.) Transportation and Traffic: Extension of airport runway to enable more viable air travel opportunities Increased float plane services Investigate BC Transit schedule options to attract more users Adjust transit routing to increase ridership Use smaller buses to provide a wider service Utilize smaller ferries which operate on a more frequent schedule Extend first and last sailing times Sechelt and Gibsons are obvious locations for transport hubs Set up Park and Ride lots at key intersections along corridor for Ride Share, transit or as formal Park and Ride locations. Establish Park and Ride facility in Sechelt close to primary shopping areas Formalize or coordinate ride share, van pooling, hitch hiker type programs Surfaced shoulders offer both cycling opportunities and emergency vehicle stop locations Bypass would: o Separate local and through traffic o o Generally reduce traffic in Sechelt, Gibsons and Elphinstone Improve traffic safety through Gibsons, Elphinstone and West Howe Sound Cycling and Pedestrian: Implement cycle network Establish bicycle rental outlets along corridor Land Use and Development: Substantial opportunities for increased residential densification along the Gibsons Way alignment in Gibsons. Focusing new development growth in the Gibsons area, coupled with a possible extension of the Sunshine Coast Highway bypass (at least as far as Henry Road or further west), will reduce traffic pressure on the highway. August 2011 Page 50

63 8.3.4 Threats (External) Entire SCRD: Conflict of interests with regards to the need for a bypass local economic opportunities versus traffic safety and congestion Localized sections of Highway 101 have no alternative route option There are several stakeholders making up the Sunshine Coast District each with their own priorities, some of which might conflict with others No identified funding for major capital projects Municipalities and electoral areas are linked by a single road which limits opportunities for neighbouring communities to integrate Accessibility challenges prevents the substantial further development of the district, resulting in an inherently limited tax base Fixed maximum capacity of ferry services limits the number of people able to visit the Sunshine Coast, thereby limiting tourist and other revenues Conflict between local resident and tourism needs Transportation and Traffic: Reduced transit service through cost cutting System improvements to facilitate through movements could disadvantage local business that are highway dependent Cycling and Pedestrian: Continued lack of consistent and continuous cycling facilities will further entrench private vehicle use and discourage cycling tourists Land Use and Development: Identified growth potential (in OCPs) primarily in Sechelt and Pender Harbour, if proceeds as planned, will impact the entire corridor and result in additional through traffic and congestion in both Gibsons and Sechelt August 2011 Page 51

64 9.0 Integrated Transportation Plan There are three overall philosophies that guide the development of this Integrated Transportation Plan, each of which have been highlighted earlier in Section 7, Preliminary Assessment and Findings. 1. It is important to reiterate that this is a regional Integration Transportation Study (ITS) and therefore primarily regional issues will be addressed. In some cases, local issues that contribute or influence regional issues, or the advancement of integrated transportation ideals, are also discussed. 2. It is equally important to reiterate that in the early stages of this Integrated Transportation Study, it became apparent there was a need for short-term, implementable and cost-effective recommendations, which on their own and collectively could make a significant impact on the Sunshine Coast, both regionally and locally, within the context of the ITS. Several of the reference documents listed in Section 6 go back many years with few, if any, recommendations being implemented. As a result, the objectives of this study include the development of short-term, realizable and standalone projects. 3. The current dual role of Highway 101 as both a regional, through highway and a local, community road needs to be recognized, and there is a need to improve the current road s safety for vehicular and non-vehicular transportation in the immediate term. The development of bypass route sections is recommended where improvements of the current highway will not adequately address traffic and safety concerns. These bypasses must be planned in a manner where they can be supported by all affected communities. Prioritization of planning and construction of any bypass sections needs to be balanced with regard to funding, land acquisition and maintaining the quality of life of all communities. There are several influences and elements making up an Integrated Transportation Plan. Each of these, specific to the Sunshine Coast, will be addressed in this section. Each will clearly state objectives and subsequent recommendations. The order of presenting the elements below are random and do not represent any order of priority for implementation. A prioritized list of action items and possible timeframes is presented in subsequent sections. To clearly define how each of these elements impacts sustainability and GHG emission reduction, the overall project objectives are also highlighted prior to each section. The following themes will be addressed initially considering the existing physical infrastructure and the level of performance of that infrastructure, then services that use that infrastructure and other related aspects: Assessment of Highway 101 in terms of road surface, horizontal curves, intersection layout and geometry, and traffic safety concerns Alternative regional though routes Congestion areas Access management Bicycle and pedestrian facilities Gibsons bypass options Transit operations Park and Ride options Ride Share opportunities August 2011 Page 52

65 Marine and air strategies Ride share opportunities Travel Demand Management strategies It could be argued that transit matters should be addressed first as transit has the best possible opportunity to lead to a reduction in single occupancy vehicle use. While acknowledging this, it is also important that the environment (road surface, congestion, safety, etc.) in which transit operates also enhances transit operations. 9.1 Assessment of Highway Condition of Infrastructure Objective Without a good road surface, any mode of transport operating on the surface will be negatively impacted, either through increased vehicle wear and tear costs, bus passenger comfort, noise pollution or increased risk to traffic safety. Maintaining a good road surface condition has positive impacts on all of the above and improves quality of life. Overall, the road surface condition of Highway 101 is good, with no sections showing visible signs of failure. Due to the strategic location of the Chapman s Creek Bridge, its condition should be regularly monitored and the bridge replaced as warranted. Recommendation 1. Undertake a condition assessment of the Chapman Creek Bridge. 2. The Ministry, in collaboration with the Municipalities, should continue a thorough maintenance schedule and routine in order to preserve the existing roadway infrastructure Horizontal Curves Review Objective Improving the design speed of horizontal curves relative to their approach and departure speeds reduces the amount of deceleration and acceleration required by vehicles, thereby reducing vehicle wear and tear and noise pollution. Traffic safety is also improved. A review of selected sharp bends in the highway alignment was done to determine the existing design speed and therefore the safe speed to travel through the bend. A preferred minimum design speed of 40 km/h was considered to be reasonable. Those curves with design speeds less than 40 km/h were identified and curve realignment options determined in order to increase the design speed to the preferred speed. Drawings of these curves are provided in Appendix E. The majority of curves below the preferred speed are located in the north-western sections of the highway. At all locations, steep terrain or rock outcrops determine that any upgrading or realigning of these curves will be very expensive, either requiring retaining structures or rock blasting. Crash statistics do not highlight any of these sharp curves to be particular safety hazards. At all locations, the road surface and condition is generally good. Had this not been the case and road reconstruction was required, realignment might be better justified. August 2011 Page 53

66 It is therefore concluded that although some curves do have design speeds of less than 40 km/h, the good road condition and high cost of realignment do not justify any roadway upgrading. Instead, the Ministry must ensure that applicable curve warning signs with relevant recommended speeds are located on the approach to all of the highlighted curves, and preferably all curves where the curve design speed is below the sections posted speed limit. In general, these warning signs are in place, examples of which are shown below. Some sections of highway in the Port Mellon area have had shoulder widening on the inside of horizontal curves to accommodate logging trucks. Traffic volumes in this area are low. As development along this section results in increased traffic volumes, developers should contribute to upgrade the roadway in the vicinity of their developments, based on required Traffic Impact Study findings and recommendations. Trout Lake, north of Halfmoon Bay, is located adjacent to the highway and attracts many visitors on warm summer days. There are several pull outs adjacent to the highway and along the bank of the lake which are used as parking lots. One of these pull outs which is located on a bend is seen in the exhibit below. Visitors also park along the highway, just off the shoulder. There are, as a result, several conflicting turning movements occurring in this vicinity, and the swimmers distract motorists. In winter, icy road conditions are experienced in this vicinity. It is recommended that the current posted speed of 80 km/h be reduced to 60 km/h approaching Trout Lake from both sides. This speed reduction will also reduce the risk of motorists misjudging the horizontal curves approaching the lake from the south, especially in winter when the roads are icy. Ice warning signs are also recommended to be erected. August 2011 Page 54

67 Recommendation 1. The Ministry ensure the approaches to all the horizontal curves (bends) along the highway shown in Appendix E are sign posted with curve warning signs and recommended speeds according to their design speeds. 2. The Ministry maintenance crews monitor that all severe curve warning signs are in place and provide the necessary reflectivity. 3. Along the Port Mellon section of highway, developers should contribute towards the necessary highway upgrades as development in the area increases. 4. The Ministry reduce the posted speed limit at Trout Lake to 60 km/h, and erect ice warning signs on the north and southbound approaches to the lake Intersection Upgrades Objective Traffic safety and mobility are enhanced by providing a consistent standard of intersection along the highway corridor. A consistent standard improves driver comfort both for motorists travelling through intersections and those turning off or onto the highway, in that these movements are properly and safely accommodated in the intersection geometry. This reduces the potential for crashes, and the need for passing motorists to have to accelerate and decelerate due to turning vehicles, thereby reducing emissions. There are inconsistencies in the layout of intersections along Highway 101. For example, some intersections have left-turn lanes combined with acceleration and deceleration lanes. These have been termed benchmark standards for the purposes of this study. Twenty-five (25) intersections throughout the region were investigated of which two are considered benchmark standards namely Madeira Park Road and Mercer Road (east). Intersections were selected based on them being the only access roads to some coastal areas, crash statistics, or their strategic function. The shortcomings at each of the other 23 intersections and recommendations to bring each intersection up to benchmark standards are listed in Table 9.1, with concept plans of each recommendation provided in Appendix F. For ease of reference, intersections are listed alphabetically. As seen in the table, improvements range from changing pavement markings to roadway widening to accommodate deceleration lanes and left-turn lanes. Table 9.1 Proposed Intersection Upgrades Intersection Problem Statement Recommended Improvement Main Road Side Road Hwy 101 Brooks Road - No deceleration lane for eastbound right turn - Provide deceleration lane Hwy 101 Bryan Road - Restricted sight distance - Upgrade intersection - Intersection located on horizontal curve Hwy 101 Davis Bay Road - Rear-enders reported in both directions due to turning movements - School located on Davis Bay Road - Intersection located close to horizontal curve, limiting sight distance - Unsafe bus stop access limited pedestrian access - Upgrade intersection to allow safe turning movements - Provide pedestrian crosswalk - Signalise intersection August 2011 Page 55

68 Hwy 101 Field Road - Conflict between weaving and merging traffic west of intersection rearenders reported Hwy 101 Flume Road - Steep approach gradient prevents easy and quick pull off by both vehicles and cyclists. This reduces perceived gap acceptance time and can lead to crashes. Hwy 101 Hwy 101 Marine Drive Hwy 101 Hwy 101 Hwy 101 Hwy 101 Hwy 101, Sunshine Coast Hwy Hwy 101 Hwy 101 Francis Peninsula Road Garden Bay Road Gibsons Way/School Road/Marine Drive Hallowell Road Harbourview Road Johnstone Road Lower Road/ Highland Road Marine Drive, Langdale Mercer Road (west) Narrows Road - Staggered intersection - Left turn conflicts - No eastbound left turn lane - No eastbound left turn lane - Staggered intersection - Conflicting access locations - High pedestrian volumes - Several driveways - 3-way stop controlled intersection - Pedestrian crosswalk on uncontrolled leg - No left turn - No deceleration lane - Sharp switchback for eastbound right turn movement - Harbourview Road provides access to several properties - No formal intersection - Restricted sight distance - Staggered intersection - Limited sight distance - Unclear access definition - No left turn lane - No eastbound left turn lane into Highland Road - No eastbound deceleration lane for right turn into Lower Road - Discontinuous cycle lanes - Lack of pedestrian crosswalks and signs - Revise pavement markings to clearly define traffic movements - Re-grade intersection approach on Flume. (This will require extensive earthwork fill and create tie-in challenges to both Flume Road further south as well as at adjacent driveways.) - Alternatively, provide signage on both Highway 101 and Beach Avenue directing through traffic to Marlene Road, just east of Flume Road. - Re-align intersection and upgrade - Upgrade south side intersection - Minor access consolidation - Provide eastbound left turn lane - Deceleration lane, with adjacent shoulder for pedestrians - All-way stop control - Raised pedestrian crossings - Provide left turn lane - Provide deceleration lane - Upgrade intersection to allow for skew - Provide turning lanes - Demarcate Johnstone Road access - Upgrade intersection with left turn lane - Sign post one-way access road - Upgrade intersection - Provide left turn lane - Provide deceleration lane - Mark bicycle lane - Mark crosswalks - Erect pedestrian wayfinding signs - No eastbound left turn lane - Provide eastbound left turn lane - Substandard pavement markings - Improve pavement markings August 2011 Page 56

69 Hwy 101 Pratt / Payne Road Hwy 101 Hwy 101 Hwy 101 Hwy 101 Redrooffs Road (east) Redrooffs Road (west) Sans Souci Road Selma Park Road - Right turn lane from Pratt onto Highway Capacity of left turn lanes on Highway 101 into Pratt and Payne - Right turn from Highway 101 into Payne (cyclist and other conflicts) - No westbound left turn lane - 15 degree skewed intersection - No deceleration lane for eastbound right turn - No deceleration lane for southbound right turn - No decoration lane for eastbound right turn - - Intersection located on curve - No deceleration lane for eastbound right turn - Selma Park Road is access to marina - No left turn lanes provided - Restricted sight distance - Undertake a traffic analysis to determine the intersection upgrade requirements - Mark left turn lane - Provide dedicated merge lane for left turn out of Redrooffs - Improve skew for left turn out of Redrooffs - Provide deceleration lane - Provide acceleration lane - Provide deceleration lane - Provide deceleration lane - Upgrade intersection with turning lanes - Radii to allow for boat trailers Hwy 101 Shorncliffe Road - Primary access to Sechelt/Cowrie Road business area and bus route - Signalize intersection - Forms part of highway capacity improvement plan - Gateway entrance to Sechelt - Improved pedestrian crosswalk Upgrading Highway 101 intersections requiring only pavement markings should be immediately prioritized. These intersections include: Field Road, Wilson Creek Marine Drive/School Road, Gibsons Marine Drive/Sunshine Coast Highway, Langdale Mercer Road (west), Secret Cove Narrows Road, Pender Harbour Other priority intersections include, in order of priority: Redrooffs Road (east), Sargeant Bay Pratt / Payne Road, Elphinstone, Gibsons Gibsons Way/School Road/Marine Drive, Gibsons Lower Road/Highland Road, Elphinstone Davis Bay Road, Davis Bay Selma Park Road, Selma Park Shorncliffe Road, Sechelt Flume Road Francis Peninsula Road Garden Bay Road, Garden Bay August 2011 Page 57

70 Lower priority upgrades include: Brooks Road Bryan Road Hallowell Road Harbourview Road Johnstone Road Redrooffs Road (west) Sans Souci Road Recommendation 1. Intersection improvements and upgrades be scheduled to be implemented by MoT according to the listed priorities. 2. Improvements requiring pavement markings only be done immediately Highway Shoulder Widths Widening shoulder widths along the entire length of the highway corridor has traffic safety and active transportation benefits. For completeness sake, this matter is addressed under the section on Active Transportation (Section 9.5). August 2011 Page 58

71 9.2 Alternative Routes Objectives Identifying alternative routes to the highway along the entire corridor, from Howe Sound to Earls Cove, reduces the potential impact of a highway closure on the local community and visitors to the Sunshine Coast. This helps prevent or reduce driver frustration, vehicle idling time, and the loss to the economy caused by highway closures. These alternative routes need to be communicated to emergency services, traffic controllers, local media and the community in general. Due to the strategic role Highway 101 plays for the Sunshine Coast, where in several areas it provides the only travel route, any incident that requires closure of the highway has several implications and impacts on the community as a whole. Incidents can range from severe crashes requiring highway closures for police investigations and rescue, to hazardous material spills, to roadway or bridge failure due to natural disasters such as earthquakes, floods, rockfalls, etc. as occurs in many rural areas of B.C. The definition at an alternative route for the purposes of the Integrated Transportation Plan is a route that motorists would be directed to only in the event of a highway closure. It would not be intended for use during stop-go type scenarios during construction and routine maintenance work along the highway. These routes might only be implemented once a year or less, and therefore no roadway upgrades would be considered along these routes to accommodate these types of short term closures. They simply provide an alternative route to enable motorists, cyclists, etc., to bypass an incident scene, and not have to wait for possibly several hours until the incident scene is cleared up and the highway is reopened. The topography of the Sunshine Coast restricts land development and continuous road network opportunities due to the steep terrain, creeks, Agricultural Land Reserve, Provincial Parks and the Strait of Georgia. The result is that there are few easy opportunities to extend the existing alternative route network. Land development along the corridor has resulted in some grid networks, especially in the developed areas of Gibsons and Sechelt. The construction of highway bypasses over the years, such as in the Redrooffs and Roberts Creek areas, has created two alternative route sections of almost 8 km in length. A map showing all the existing alternative routes along the highway corridor is shown in Figure 9.1. The map shows that of the 84 km highway length, 32 km can be bypassed in the event of a highway closure. This represents 40% of the highway length. The (long term) planning of the Gibsons Bypass would not contribute to providing additional alternative route sections as there are several route alternatives due to the already established road network. The east Sechelt bypass proposed in the District of Sechelt Transportation Master Plan would provide additional alternative route sections, especially from Field Road to Wharf Road. The Chapman Creek Bridge is a particularly vulnerable location on the highway as presented earlier, and establishing an alternative to this crossing in the event of its closure would require new road infrastructure upstream of the crossing where the creek is narrower and less steep. The proposed Sechelt Bypass would provide this alternative crossing. Future road network planning along the entire corridor should aim to close the gaps identified on the map in Figure 9.1. In some cases where the topography prevents August 2011 Page 59

72 alternative routes, sea based alternatives such as boats and barges that can travel between marinas will need to be considered as real alternatives. To properly plan the response to such incidents and especially those of longer duration, a Highway Incident Management Plan should be formulated, involving all the local emergency services, municipalities, stakeholders, BC Transit and others. This Plan will enable the highway to be reopened as quickly and efficiently as possible, and minimize social, economic and environmental impacts of these incidents. It should not be confused with a Disaster Relief or Emergency Plan. A Highway Incident Management Plan typically includes the prior planning of: Identification of alternative routes Establishment of communications and command channels Signage plan Law enforcement and flagger stationing Special vehicle identification, e.g. cranes, HAZMAT response, etc. Public information plan Recommendation 1. The alternative routes already identified should be formally communicated to emergency services, local media and the local community to raise awareness of these alternatives in the event of a future highway closure. 2. A Task Team consisting of District representatives, municipal representatives, the Ministry, emergency services and the trucking industry should be established to investigate achievable alternative routes for those sections without obvious existing alternatives. This includes water based options, as well as short term impacts of any highway closures. 3. A Highway Incident Management Plan should be established addressing incident response, communication, scene clean-up and heavy equipment (cranes and wreckers) availability. August 2011 Page 60

73 Figure 9.1 Existing Alternative Routes to Highway 101 August 2011 Page 61

74 9.3 Congestion Areas Objective Congestion reduces the efficiency of movement of vehicles, goods and services, increases emissions and driver frustration and, particularly in more urban areas, can influence where businesses locate and people choose to live and work. Without dedicated lanes and signal pre-emption, transit operations are also negatively affected, reducing the opportunity for mode shift away from private vehicles. Reducing congestion through mode shift is the most effective sustainable option, however in reality motorists do not give up the comfort and convenience of their private vehicle easily unless they perceive significant advantages to using alternative modes. This remains every municipality s challenge around the world. There is the option to provide bypass routes around congested areas to separate through and local traffic. This requires significantly more capital expenditure, is more long-term, and by providing this level of additional capacity reduces the opportunities to achieve a mode shift, and could even entrench private vehicle usage further. Choosing to invest these funds into an expanded and improved transit service will reduce congestion through mode shift and thereby reduce vehicle emissions and preserve those rural neighbourhoods, wildlife corridors, greenlands, businesses and the like that would have been impacted and directly affected by any new road corridors. A combined approach of limiting transportation infrastructure capacity upgrades while improving transit services is therefore the preferred strategic direction in the short to medium term. There are primarily two areas of concern from a congestion perspective on the Sunshine Coast: Highway 101 through Gibsons and Highway 101 through Sechelt. At these locations, it is the combination of local traffic and through traffic, and their respective conflicting trip purpose and movements, that is contributing to this congestion Gibsons Way/Highway 101 Gibsons The congestion on Gibsons Way is proposed to be addressed through a combination of short-term and long-term bypasses, and the introduction of access management principles. Both these proposals are discussed in detail in Sections 9.4 and Highway 101 Sechelt Several studies have been done in Sechelt that analyzed the performance of Highway 101 through Sechelt and proposed improvements needed to maintain an acceptable level of performance. More recent studies focus on creating bypass routes and one-way couplets through Sechelt. There are two highway sections that are currently experiencing traffic congestion in Sechelt. These are: i) Highway 101 from Field Road to Chalpi Avenue (conveyor belt) where the highway widens to four lanes; and ii) The intersection of Wharf Road and Highway 101/Dolphin Street. August 2011 Page 62

75 i) Field Road to Chalpi Avenue (Conveyor Belt) Sechelt Bypass Option As presented in Section 7, in the 2009 Sechelt Transportation Master Plan a capacity assessment was done of Highway 101 through Sechelt, from Field Road to West Sechelt. The study concluded that the section of highway through the Davis Bay and Selma Park area would have a volume to capacity ratio (v/c ratio) of greater than 0.8 by 2018, and a v/c ratio of greater than 1.0 by It is generally accepted that a ratio of 0.85 is a failing condition. As a result, a Sechelt bypass is proposed in the Transportation Master Plan, with three alignments presented, namely: 1) An eastern bypass from Field Road to Wharf Road (approximately 7 km in length); 2) A western bypass from Wharf Road to Norwest Bay Road (approximately 2.5 km in length); and, 3) A west Sechelt Connector from Trail Avenue to Tyler Road (approximately 2.5 km in length). These three alignments are shown in Figure 9.2. Due to the congestion currently experienced in the Davis Bay and Selma Park area, the short term priority is the Eastern Bypass. The western bypass should be considered in the long term, or can be built in stages with land development. There are several advantages to this Eastern Bypass, namely: It separates through and local traffic from the highway in the Davis Bay and Selma Park areas, reducing traffic volumes and making these areas more liveable from a sustainability perspective. It improves traffic and pedestrian safety by reducing traffic volumes. It provides an alternative route to the existing highway in the event of a highway closure. It establishes a second crossing of Chapman Creek, improving access to the hospital and prevents the risk of sections of the Sunshine Coast being cut off in the event of the existing bridge failing. It provides better access to the airport, especially for when the planned airport expansion goes ahead. Depending on its chosen route through West Sechelt, it relieves traffic congestion caused by the westbound left turn at Highway 101 northbound and Wharf Road. Since the bypass is a short-term improvement, establishing and protecting a right of way for this bypass is required, as well as a funding strategy to enable this to be built by 2018, when this section of Highway 101 is expected to reach capacity. This bypass is expected to be a 2-lane roadway, with collector road access connections, but no driveways. The alignment should be located as far as reasonably possible following the BC Hydro Corridor within the Sechelt Band Land, with confirmation from or consultation with the Band, and outside the ALR to the greatest extent, with consultation with the District of Sechelt and Roberts Creek Communities. August 2011 Page 63

76 Eastern Bypass (Field Road to Wharf Road) Eastwards alignment options: Rat Portage Hill? West of Girl Guides Camp? Others? Exact alignment subject to extensive public consultation Western Bypass (Wharf Road to Norwest Bay Road) West Sechelt Connector (Trail Avenue to Tyler Road) Figure 9.2 Sechelt Bypass Alignments August 2011 Page 64

77 The dog-leg nature of the proposed Eastern Bypass and its planned connection to Field Road (as seen in Figure 9.2) raises the question as to whether or not motorists will divert to the bypass, or simply continue through Davis Bay, in spite of the traffic congestion. A more direct eastern route alignment would encourage better diversion of traffic to the bypass. Connector options to consider include: Rat Portage Hill West of Girl Guides Camp Others Each of these alternative eastwards connection alignments, including Field Road, have local considerations and impacts, including: Minimize property impact Avoid ALR to the greatest extent Provincial Parks Social and community Environmental Topography It is recommended that detailed alignment planning, including all local connections, of the proposed Sechelt Eastern Bypass be developed and agreed to through extensive public, local stakeholder and MoT consultation, as well as meaningful consultation with citizens of Roberts Creek on the eastern extent of the Bypass. This alignment and its connections should specifically be located outside of ALR to the greatest extent possible, and the proposed eastern extent of the bypass be located in the vicinity of the Sechelt / Electoral Area D boundary, on an alignment determined in the detailed planning process. Once this bypass is in place, the existing section of highway which is bypassed may fall under municipal jurisdiction and serve primarily local and collector road functions. At the time of consideration of handover, there will be a need for consultation with the Ministry of Transportation and Infrastructure on costs associated with roads divested to municipalities, if the municipalities so choose. ii) Wharf Road and Teredo Street So as not to repeat previous studies and to seek possibly more short-term alternatives to those options already proposed, preliminary analysis was done to determine possible improvements that can be made to the existing Highway 101 corridor along Wharf and Teredo, between St. Mary s Hospital Road and Shorncliffe Road, and which minimised community impacts. Assumptions and Methodology Traffic counts were done in September 2009 at the intersection of Wharf Road and Dolphin Street. During the time of the traffic counts, a portion of East Porpoise Bay Road was closed just east of Wharf Road causing vehicles heading to / from East Porpoise Bay to use a detour route to the east of Wharf Road (St. Mary s Hospital Drive). This road closure caused an increase in westbound left-turn and northbound right-turn traffic at the intersection of Wharf Road. Other movements, including the southbound and northbound through movements, and the southbound left-turn and westbound right-turn movements, were reduced. The overall volume of vehicles travelling through the intersection were however, not significantly affected by the road closure. The average 2009 weekday PM August 2011 Page 65

78 peak hour traffic volumes were determined using the total volume of vehicles counted and applying the turn distributions from the 2009 Transportation Master Plan Report for the District of Sechelt (Bunt and Associates). The turning volumes at the Highway 101 intersections with Cowrie Street, Inlet Avenue and Trail Avenue were also determined from the same report. The remaining intersections (Sinku Drive, Ocean Avenue and Burley Place) were assumed to have minimal turning volumes (5 vehicles per hour for each minor movement). The 2026 volumes were determined using an annual 2.5% growth rate for all movements. The assumed 2026 PM peak hour traffic volumes for Sechelt are shown in Table 9.2. Heavy truck percentages were assumed as 2 percent for all movements in the area during the PM peak. Highway 101 Intersection Table 9.2 Estimated 2026 Hwy 101 Intersection Traffic Volumes in Sechelt Traffic Volumes (veh/hr) EBLT EBT EBRT WBLT WBT WBRT NBLT NBT NBRT SBLT SBT SBRT Dolphin Street Cowrie Street Sinku Drive Inlet Avenue Trail Avenue Ocean Avenue Burley Place Shorncliffe Avenue The intersection analysis was conducted using Synchro software. Signal timing plans for the intersections of Highway 101 at Dolphin Street and Cowrie Street were obtained from the MoT. Signal operation at all intersections was optimized for each scenario. Traffic Analysis Two scenarios were analyzed: 1. Existing road layout (one lane per direction) 2. Upgraded road layout (two lanes per direction). (It is important to state that this scenario is only analyzed in order to determine the extent of roadway upgrade improvements that might be required in order to achieve acceptable levels of highway operation. The conclusions of this analysis are contained in the Findings section below.) (i) 2026 PM Peak Hour with Existing Layout The 2026 PM peak hour traffic operational performance for the existing layouts for the Highway 101 intersections in Sechelt can be seen in Table 9.3. For this scenario, several movements at each of the intersections at Dolphin Street, Trail Avenue, Inlet Avenue and Shorncliffe Avenue will operate at a poor level of service by 2026, namely level of service F, a failing condition. August 2011 Page 66

79 (ii) 2026 PM Peak Hour with Improved Layout To improve the operation of the Highway 101 corridor and intersections in Sechelt, theoretical intersection and corridor upgrades were analyzed. From Dolphin at Wharf Road to just west of Shorncliffe, the through lanes were increased from one to two lanes in each direction. The upgrades analyzed at each intersection are described below: Dolphin Street: o Signalized intersection at Wharf Road (existing) o Increase to two eastbound through lanes (tie in approximately 50 m west of intersection) o Add a second westbound left-turn bay o Increase to two southbound through lanes with a left-turn bay o Increase to two lanes on the northbound approach with one lane as a forced channelized right-turn Cowrie Street: o Signalized intersection (existing) o Increase Highway 101 through lanes to two in each direction Sinku Drive: o Increase Highway 101 through lanes to two in each direction Inlet Avenue: o Signalize intersection (new) o Increase Highway 101 through lanes to two in each direction Trail Avenue (new): o Signalize intersection (new) o Increase Highway 101 through lanes to two in each direction Ocean Avenue: o Increase Highway 101 through lanes to two in each direction Burley Place: o Increase Highway 101 through lanes to two in each direction Shorncliffe Avenue: o Signalize intersection (new) o Increase Highway 101 through lanes to two in each direction With these theoretical upgrades, the Highway 101 intersections are expected to operate at overall LOS C or better in the 2026 PM peak hour, as seen in Table 9.3. All individual movements will operate at a satisfactory level, and traffic delays will be significantly reduced. The upgraded layout scenario is shown graphically in Figure 9.3. Property boundary to property boundary right-of-way is measured at 20 m along this section of highway through Sechelt. A roadway cross-section is proposed as follows: Mid-Section: o Travel lane width: 3.3m o Bicycle lane width: 1.5m o Sidewalks: ±1.5m (to fit) o Total Width: 19.2m Intersections o Through lanes: 3.3m o Turning lanes: 3.0m o Bicycle lanes: 1.5m o Sidewalks: To be determined in next design stage (prefer 1.5 m min) o Total Width: 19.2m (excluding sidewalks) August 2011 Page 67

80 Table 9.3 Hwy 101 Intersection Scenarios & Performance: 2026 PM Peak Hour Highway 101 Intersection Intersection Configuration Existing Layout Delay (s) LOS Critical Movements Intersection Configuration Improved Layout Delay (s) LOS Critical Movements Dolphin Street S F EBT, EBRT, WBLT, NBLT, NBT, NBRT, SBLT S 32.3 C - Cowrie Street S 19.4 B - S 15.1 B - Sinku Drive U 26.3 D - U 10.0 A - Inlet Avenue U F NBLT, NBT, NBRT, SBLT, SBT, SBRT S 12.7 B - Trail Avenue U 574 F NBLT, NBT, NBRT, SBLT, SBT, SBRT S 15.6 C - Ocean Avenue U 30.1 D - U 10.6 B - Burley Place U 30.2 D - U 10.2 B - Shorncliffe Avenue U F NBLT, NBT, NBRT, SBLT, SBT, SBRT S 15.4 B - August 2011 Page 68

81 Findings Note: - U signifies unsignalized intersection and S signifies signalized intersection. - For an unsignalized intersection, the level of service and delay shown represent the stop controlled approaches only. - LOS A and B indicates an excellent condition, LOS C and D indicates an average and acceptable condition, and LOS E and F indicates an over-saturated unacceptable condition. The above analysis has shown the extent of upgrading required of Wharf Road and Teredo Street in order to achieve suitable long term traffic operational performance. However, it has several consequences, including: Loss of on-street parking, on which the adjacent shops and businesses rely Loss of adequate sidewalk width (desirable being 3 m minimum) Social impact of a 4-lane roadway versus the current 2-lane roadway Inconsistent with future bypass planning For these reasons, as well as stated community and stakeholder dislike of this scenario, the 4-laning of Wharf and Teredo is rejected and instead, a future, proposed Western Bypass is supported, tying-in with the short-term Eastern Bypass. These bypasses will reduce traffic demand on Wharf and Teredo thereby reducing the need for future upgrading along this section. Recommendation 1. The District of Sechelt convene a working group with MoT, BC Hydro, SCRD, Sechelt Indian Band, local stakeholders and community representatives to establish a preferred alignment of the Eastern Bypass, and undertake the required community consultation process. 2. Prepare preliminary design of the Sechelt eastern bypass and determine a cost estimate. 3. The District of Sechelt, MoT, BC Hydro and Sechelt Indian Band identify a strategy to establish and protect the eastern bypass alignment right of way, and implement that strategy. 4. At the same time as 2) above, a funding strategy be formulated and implemented to enable construction by The District of Sechelt convene a working group with MoT, BC Hydro, SCRD, local stakeholders and community representatives to establish a preferred alignment of the Western Bypass, and undertake the required community consultation process. August 2011 Page 69

82 Sunshine Coast Regional District Figure 9.3 August 2011 Theoretical Hwy 101, Teredo Street and Intersection Upgrades to Achieve Acceptable Performance Measures (For traffic analysis purposes only. Road upgrades represented are not recommended) Page 70

83 9.4 Access Management Objective Access management reduces the number of traffic conflict points in the road network, increases traffic and active transportation safety and enables a more efficient movement of people, goods and services. It also improves access to businesses by aiding easier and safer access by relocating driveways to the less trafficked side roads versus on main thoroughfares. A form of access management, the two-way-left-turn-lane (TWLTL) concept, can be applied to help restore access if implemented correctly. As with the congestion areas presented earlier, access management issues are evident in Gibsons, along Gibsons Way (Highway 101) and in Sechelt, along Teredo Street (Highway 101) Gibsons Way The reduction in 2009 of Gibsons Way between North Road and Payne Road from four lanes to two lanes resulted in several businesses on both sides of the corridor no longer having (allowed) access from both directions. Essentially, right-in, right-out movements were indirectly established. This concept works well provided there is a parallel, easily accessed, grid road network that enables motorists to drive around the block to gain access from another direction. The current block sizes prevent the existing road network from serving as a parallel grid. Without this parallel grid, illegal turns and U-turns are likely to rise significantly, or the other consequence is that businesses suffer with clients feeling they no longer have easy access to stores, and feel forced to shop or do business elsewhere. It is evident that both these negative impacts have resulted along Gibsons Way due to the lane reduction. It is understood that the Town of Gibsons has no immediate plans to implement a parallel grid road network, however remains committed to working together with the MoT and Elphinstone to providing safe access to businesses while also improving the flow of through traffic on Gibsons Way. The Upper Gibsons Neighborhood Plan does indicate the creation of an eventual midblock parallel road network roughly 400 m north of Gibsons Way (in the vicinity of Kiwanis Way), linking Payne and North Roads. The Town has also previously considered the extension of O'Shea Road on the south side of Gibsons Way from Shaw Road to Mahon Road. This extension would however require an environmental assessment for the wetlands in White Tower Park, and extensive public consultation. In the interim, the implementation of a TWLTL on Gibsons Way offers a solution to these problems and is made easier by the available road cross-section having been reduced from four to two lanes, plus bicycle lanes in some sections. The TWLTL is a lane in the median of the road that enables left turning motorists to enter this median lane close to their intended destination, and wait safely in this lane for a gap, thereby not obstructing traffic flow in either direction. It is similarly used for motorists turning left out of a driveway, where they use the TWLTL as a refuge until it is safe to merge into the adjacent traffic stream. This is especially effective on roads with only one travel lane per direction and driveways generally have low traffic volumes. The success of TWLTLs is achieved by proper signage and pavement markings, and (preferably) clearly separated using raised median islands at intersections. The latter are used to prevent motorists using the median TWLTL as a travel lane or as an extended turning lane at the intersections. Public education is also required specifically if local communities are not familiar with the concept and its intended operations. August 2011 Page 71

84 An example of a TWLTL on Highway 10 in Cloverdale on the Lower Mainland is shown in Figure 9.4. This section of highway has a posted speed of 50 km/h and is a four lane cross-section. The TWLTL provides bi-directional access to several drive-through coffee shops and other general stores and businesses, as well as an elementary school. Figure 9.4 Example of a Two Way Left Turn Lane in Cloverdale, Surrey Plans showing how a TWLTL can be implemented on Gibsons Way are provided in Appendix G. With only a few driveway relocations or consolidations and some adjustments at intersections, this can be implemented with relative ease. Whether or not a dedicated bicycle lane or a wider travel lane can be accommodated to ensure cyclists needs are met will have to be determined in the next design stage, if this proposal is accepted by all authorities. The concept of a TWLTL in Gibsons needs to be evaluated in a holistic, sustainable perspective in that overall traffic safety is increased, business access is restored and general traffic mobility is improved. One area of the proposed access management plan is that of Farnham Road. Farnham Road provides access to a busy clinic, a motel and residential complexes. Almost opposite the Farnham Road intersection on Gibsons Way is an access to Elphinstone Secondary School. Relocating the Farnham Road access further west along Gibsons Way or to Shaw Road, and converting the existing intersection to a right-in, right-out, are options shown on the plans in Appendix G. A final decision on this option should be made in the next design stage. Recommendation 1. Advance the TWLTL concept plans to the functional design stage by MoT and Gibsons to determine an actual roadway cross-section and bicycle accommodation options. 2. If accepted, implement a comprehensive public education process to properly inform motorists of the benefits of the TWLTL concept and how to use it. This could include a video presentation of a motorist using this turning lane, demonstrating its ease of use. August 2011 Page 72

85 9.4.2 Teredo Street (Highway 101), Sechelt Teredo Street, between Trail Avenue and Shorncliffe Avenue, has multiple shopping center driveways on its northern side. The intersection of Ocean Avenue on the south side further adds to the number of conflicting turning movements on this section of highway. A previous study showed a possible realignment of Rosina Giles Way to the north of Teredo Street to link with the existing Ocean Avenue intersection south of Teredo. This was to provide better access to the municipal offices and library. Subsequent planning, in particular the Sechelt bypass linking to Trail Avenue at Neptune Road and the proposed upgrade and signalization of both Trail Avenue and Shorncliffe Avenue, warrants a review of this proposed realignment. The possible future signalization of Shorncliffe and Trail, and the existing signal at Cowrie Street, results in signal spacings of 400 m. To ensure optimum signal coordination and highway mobility, TAC s Geometric Design Guide for Canadian Roads (Table ), recommends the desired spacing between signalized intersections is 415 m for a 50 km/h average travel speed. Signals at Shorncliffe, Trail and Cowrie are therefore consistent with this spacing recommendation to facilitate traffic mobility. There is a proposed 106 condominium and retail project on the south side of Teredo between Trail and Inlet Avenue. Access to this development is planned to be at Inlet Avenue, with associated intersection upgrades. Given intersection spacing guidelines for highway mobility, Inlet Avenue should not be signalized but be stop controlled on Inlet and free flow on Teredo with a left turn lane. To improve traffic safety and increase highway mobility along this section, the signalization of the Trail Avenue intersection on Highway 101 (Teredo Street) is proposed, with the added advantage of establishing safe pedestrian crosswalks at this intersection. The consolidation of traffic south of Teredo Street to this intersection will enable the safer and more effective use of the intersection. Due to the limited development opportunity south of Teredo Street, the diversion of left turning traffic from Ocean Avenue to Trail Avenue is considered reasonable. This is shown in Figure 9.5. There are two options to address the access conflicts at Ocean Avenue: i) The closure and consolidation of driveways and the modification of Ocean Avenue intersection to allow only right-in and right-out movements, and the construction of Windward Lane (to full engineering standards and guidelines) to improve access to Trail Road. Windward Lane is currently a gravel road, and the waterfront boulevard is a one-way from Trail Road to Ocean Avenue. DCC s from the development of the adjacent land parcel are proposed to pay for the construction of Windward Lane. Waterfront Boulevard will remain one-way westbound. These engineering measures are shown in Figure 9.5. ii) Realignment of Rosina Giles Way with Ocean Avenue, with the associated driveway and parking relocations, property impacts and acquisition, road upgrade between Teredo Street and Cowrie Street and utility relocations. A concept layout of the realignment is shown in Figure 9.6. August 2011 Page 73

86 Sunshine Coast Regional District Figure 9.5 August 2011 Teredo Street (Highway 101) Access Management Page 74

87 Figure 9.6 Rosina Giles Way Realignment Concept Plan The Rosina Giles/Ocean Avenue realignment was previously estimated to cost over $900,000, excluding utility relocations and property acquisition, but including a signal ($250,000) at the Teredo Street intersection. This signal is required due to the need to accommodate truck turning movements which then forces the set back of the exit lane stop bar, almost eliminating sight distances for exiting vehicles. This set back is made worse by the angle of skew of the intersection, which angle cannot be improved without significant property and parking impacts. A signal at this intersection is not recommended when considering signal spacing to ensure traffic mobility, with Shorncliffe Avenue located only 180 m to the west. The well established surrounding road network and access lanes enables easy access to the area north of Teredo Street, reducing the need for a Rosina Giles Way realignment link. For all these reasons, the access management measures shown in Figure 9.5 are recommended. In the absence of signalization at Shorncliffe, consideration should be given to providing a safe pedestrian crossing of Teredo at Ocean Avenue, however careful analysis of sight distances will be required to ensure pedestrians are not at risk due to limited sight distances for both motorists and pedestrians caused by the bend in the road. Recommendation 1. The access management measures shown in Figure 9.5 be implemented. 2. The trees obstructing sight distances on the horizontal curve on Teredo Street, north of Ocean Avenue, be removed to improve traffic safety. August 2011 Page 75

88 9.5 Active Transportation Definition: Simplistically, active transportation includes all those modes of transportation that require human effort versus driving a car or sitting on a bus. Examples include: Cycling Walking/Running Skateboarding Golf carts and motorized wheelchairs (these require less human effort however are becoming more prevalent on the Sunshine Coast with the aging community) Objective There are several benefits to properly accommodate active transportation modes into a road network: No GHG emissions A healthier population Requires little or no road space (for example: shoulder lanes, bicycle lanes, separated multi-use pathways, sidewalks) Increased safety will encourage more users, thereby reducing private vehicle usage, reduce congestion, and reduce GHG emissions Economical and social opportunities are also created with bicycle rental stores opening due to the improved facilities giving residents and tourists more confidence to ride bicycles, and with more people on the streets, more social interaction takes place. Several measures have been identified to facilitate and improve active transportation on the Sunshine Coast. These measures are listed below and subsequently discussed in more detail: Ferry-to-Ferry Shoulder/Multi-Use Pathway Improve Shoulder Rideability on Highway 101 and other Regional Routes Recreational Pathways Regional Bicycle Route: West Howe Sound to Roberts Creek: o Marine Drive from Langdale to Gower Point Road, Gibsons o Gower Point Road to Lower Road o Lower Road to Roberts Creek Separated Pathway on Highway 101 Designate Bike Routes Improved Signage Traffic Calming at Gibsons Landing Provide Bike Lane Striping from Langdale Terminal along Highway 101 Provide Crossing Facility on Port Mellon Highway Pedestrian Facilities at The Poplars on Highway 101 Increase Capacity and Number of Rack-Equipped Buses Provide Secure Bicycle Parking and Facilities Encourage Bicycle Rentals Encourage Local Safe Routes to School Committees Improved Lighting Develop Comprehensive Map on SCRD Website and Printed Brochures Develop Tourist Maps/Information Increase in Funding Establish a Regional Alternative Transportation Advisory Committee (ATAC) August 2011 Page 76

89 9.5.1 Ferry-to-Ferry Shoulder/Multi-Use Pathway The provision of a ferry-to-ferry shoulder/multi-use pathway is already an objective of the Ministry of Transportation and Infrastructure and is gradually being implemented as sections of the highway are upgraded and as spot improvements are carried out. It is recommended that the gradual implementation be prioritized to address the most critical sections first, in addition to taking advantage of other road works projects which are happening. Widening of the highway shoulder should be focused on: i. Urban Areas ii. Uphill Sections iii. Curved Sections Many instances were observed of runners, walkers with baby carriages and motorized wheelchair users travelling along the highway. It would improve the safety of all these users plus the other users of the highway to have an expanded shoulder/pathway of 1.5 to 2 metres. BC Ministry of Transportation and Infrastructure Supplement to TAC Geometric Design Guide specifies the following shoulder bikeway guidelines: Controlling Condition For most cases, except as below For design speed 70km/h and SADT > 5,000 For design speed 80km/h and SADT > 10,000 Minimum Design Width (m) 1.5 m 2.0 m 2.5m o o Travel lanes next to the shoulder should be at least 3.6m wide. SADT = Summer Average Daily Traffic (July and August) Due to the increase in ferry trips to and from the Sunshine Coast and increased traffic volumes in general during the summer months, sections of the highway shoulder bikeway, especially between Gibsons and Sechelt, do warrant 2.0 m wide shoulder widths based on the above table. A 2.0m wide shoulder is further warranted since the shoulder also serves as the pedestrian walkway along the highway. West of Sechelt, 1.5 m shoulders are warranted. Currently the Ministry is applying the 1.5 m shoulder bikeway width guideline in an effort to provide at least this width along the entire corridor from Langdale to Earls Cove. While it is recommended the provincial guideline of 2.0m be implemented in urban areas as a priority, an equal priority uphill section for shoulder widening is in the Davis Bay area as an example. On Highway 101 westbound between Bay Road and Chapman Road, the 400 m long uphill gradient requires cyclists to be out of their saddle on this climb. The narrow shoulder coupled with the (extruded) asphalt drainage curb makes this climb particularly challenging, and more dangerous is wet conditions or at night when the asphalt curb is less visible. The photo below shows this hill climb. At the time of writing, the MoT was preparing final designs for shoulder widening from Bay Road to Selma Park Road, which would be built in stages depending on the availability of funds. In the interim August 2011 Page 77

90 though, cyclists have the option to use Laurel Avenue, a local road just east of the highway, between Davis Bay Road and Havies Road as an alternative. Shoulder widening on Highway 101 is currently undertaken by the MoT maintenance contractor using excess maintenance funding. The practice is to provide 1.5 m shoulders minimum, in both directions, using a process called scabbing, whereby the existing gravel shoulder is levelled and an asphalt overlay applied. This can result in both a bumpy finish and a groove at the sawcut line, or scab-on joint. Some of these shoulder surfaces have since cracked. Examples of this are shown in the exhibits below. An alternative, but more costly approach, is to properly reconstruct these shoulders to 2 m width, applying a proper pavement structure and lap joint. While this approach will result in less new shoulder distance per year, the new shoulders will be more cyclist and pedestrian friendly and last longer. It is also recommended that project funding be applied, versus primarily maintenance funding Improve Shoulder Rideability on Highway 101 and other Regional Routes In areas where there are driveways and intersections, there is often significant gravel accumulation and sloping driveway entrance transitions which effectively renders the shoulder unusable for cyclists. The exhibits below show examples of this at both a side road and at a driveway. August 2011 Page 78

91 The Ministry is currently bringing in a policy which requires extended paving of intersections and other access points on the highway. In addition, increased sweeping of these points is recommended by the maintenance company charged with highway maintenance as well as re-grading and paving adjacent portions of steep intersecting driveways Recreational Pathways There is currently a 1.5 km long, separated pathway on the east side of the highway starting at Roberts Creek Road and heading north. Extension of this separated pathway further northwards past the Girl Guide Camp, and eventually to Field Road, is desirable. There may be future opportunities for similar sections to be constructed in conjunction with new developments and in areas where there is significant pedestrian traffic generated by community facilities. While these pathways are sometimes not used by long distance riders and commuters, who prefer paved shoulders, the extension of the pathway in either direction is described in Section below. An SCRD program, which has recently received funding, is the Suncoast Trail System which runs from Earls Cove to Halfmoon Bay and is planned to be extended to Langdale. The trail is being designed for multi-purpose use. Maps of these trails are provided Appendix H Regional Bicycle Route: West Howe Sound to Roberts Creek This bicycle route is divided into three district sections as follows: i. Marine Drive from Langdale to Gower Point Road, Gibsons ii. Gower Point Road to Lower Road iii. Lower Road to Field Road Separated Pathway on Highway 101 i Marine Drive from Langdale to Gower Point Road, Gibsons Marine Drive from the Langdale ferry terminal to Gibsons is a strategic connection for cyclists on the Sunshine Coast as it enables them to avoid the steep climb up the Sunshine Coast Highway after exiting the ferry, and then continue through Gibsons and Elphinstone and eventually back onto Highway 101. However, high traffic speeds, narrow travel lanes, minimal shoulder width with deep ditches on one side and steep drop-offs to the ocean on the other, result in only experienced cyclists using this route. Only sections of this 6 km section have sidewalks. Traffic counts from September 2009 indicate that relatively few vehicles, between one quarter and one third of those leaving the Langdale terminal, use Marine Drive. In total, about 1,000 vehicles per day travel towards Gibsons and 800 vehicles per day travel towards the terminal, mainly timed with ferry arrival/departures. This traffic can often exceed the posted speed limit of 50 km/h. August 2011 Page 79

92 There is a local preference to widen Marine Drive to better accommodate vehicles, cyclists and pedestrians. This should be done in cooperation with MOT in planning and obtaining funding from the Province and other grant sources to construct these nonvehicular transportation works. Options include: Provide 2.0 m wide shoulders on both sides of Marine Drive Provide a shoulder and sidewalk where physically possible Provide a multiuse pathway on the sea side where appropriate Local topography dictates that a 2.0 m wide shoulder on both sides will be extremely challenging and costly to achieve. In some locations there are steep drop-offs adjacent to the road, and driveway and side road tie-ins will require extensive earthworks and geometry improvements. The exhibits below show these various challenges. In other sections though, a multiuse pathway is achievable, as seen in the exhibits below, and as planned on the Chekwelp lease lands. August 2011 Page 80

93 Sunshine Coast Regional District An immediate measure to implement along this 6 km section is additional signage. These signs should include: Electronic speed monitoring signs 50 km/h speed limit signs Concealed driveway warning signs Share the road signs (alerting motorists to the presence of cyclists and pedestrians) Bicycle route marker signs ii Gower Point Road to Lower Road Establishing a cycling connection between Gower Point Road (Gibsons) and Ocean Beach Esplanade (Elphinstone) to Lower Road (Roberts Creek) would create an offhighway cycling route that extends from the Langdale Ferry Terminal all the way to beyond Roberts Creek and tie into the separated pathway, a distance of about 20 kms. Options to establish this continuous route are shown in Figure 9.7, and include a connection across Walker Creek from Grandview Road to Oceanview Drive, or a connection from Ocean Beach Esplanade to Oceanview Drive. There is also the option of a pedestrian only, natural beach route to Gulf Road that involves no infrastructure being built on the beach. These options will each require a detailed feasibility study to determine if any are achievable given the topography, creeks and possible property and environmental impacts. Figure 9.7 August 2011 Gower Point Road to Lower Road Connection Options Page 81

94 An existing cycling / pedestrian roadway shoulder route from Gibsons continues along Gower Point /Pratt/Chaster/King/Fitchett Road/Veterans Roads to Highway 101. This route is however not sign-posted as a cycle route. Ultimately it is intended to continue on a separate pathway along Highway 101 to connect to the current pathway at Roberts Creek Road continuing as a separate pathway to Field Road in Sechelt. iii Lower Road to Roberts Creek Separated Pathway on Highway 101 Lower Road should be designated as a bike route, in which case traffic calming measures should be considered in the future Designate Bike Routes All highway alternate routes should be designated as bicycle routes. This would include a route along Marine Drive into Gibsons and leaving Gibsons via Gower Point Road. The bike route way finding signs should be placed on the highway with sufficient notice to allow cyclists to have access to the alternate route. There are currently sections of these alternate routes which have incomplete bicycle facilities on them. The completion of these facilities will provide a more comprehensive bicycle network for the region and encourage more people to choose to cycle Improved Signage It is recommended that alternative routes for cyclists be signed using TAC standard signage. These signs should include tabs indicating destinations, and distances to rejoin the highway. There is also a need to provide better signage to public facilities from the highway. This will assist both cyclists and pedestrians with way-finding and allow more people to park and cycle or walk. Signage should also be more widely provided on both Highway 101 and other regional routes to inform motorists of the presence of cyclists. Example of recommended signs include: The Ministry is reluctant to sign roadway sections that are not wide enough to accommodate both vehicles and cyclists. In these locations, and especially on the offhighway routes, the share the lane signs should be used. An indirect benefit of this signage is that it also informs motorists of the option to cycle themselves, and so reduce vehicle traffic, even if marginally Traffic Calming at Gibsons Landing There are several pedestrian/vehicle conflict points in the vicinity of Gibsons Landing, compounded by the number of driveways in this section of Marine Drive and the fact that the Marine Drive/School Road intersection has one free flow leg while the other three are stop controlled. Proposed upgrades to the area are shown in Figure 9.8 and include August 2011 Page 82

95 raised pedestrian crossings as well as a stop control on the fourth leg. This is consistent with the Phase 1 recommendation for this intersection contained in the Town of Gibson s Safety Study, Bunt, August Provide Bike Lane Striping from Langdale Terminal along Highway 101 Bike lane markings through the intersection and continuing up the hill along the shoulder of the highway are recommended to assist motorists and cyclists in sharing the road in this critical section. This is shown in Figure Provide Crossing Facility on Port Mellon Highway Pedestrian safety on the Port Mellon Highway could be improved with the addition of a 2m shoulder/pathway, on both sides of the road, especially between the Langdale terminal and YMCA Road, where groups of pedestrians head east along the highway to access camps in the area. Closer to the camps (at YMCA Road) there is a widened shoulder provided on the east side of the road, however this is not continuous, as seen in the exhibits below. At this location, it would be preferred if pedestrians used the Langdale Road frontage road, which is on the west side of the road. South of the frontage road, pedestrians can continue to the ferry terminal on the west side shoulder of Port Mellon Highway, however then are required to again cross the highway to access the terminal. At this location the highway is three lanes. A designated crosswalk is recommended closer to YMCA Road with associated pedestrian warning signs, and a designated crosswalk with (preferably) pedestrian controlled signals is recommended to allow pedestrians easier access to the ferry terminal from the west side of the Port Mellon Highway. August 2011 Page 83

96 Sunshine Coast Regional District Figure 9.8 August 2011 Proposed Upgrades at Gibsons Landing Page 84

97 Sunshine Coast Regional District Figure 9.9 August 2011 Highway 101 / Langdale Terminal Bike Lane Markings Page 85

98 Pedestrian Facilities at The Poplars on Highway 101 Just west of Gibsons is the residential neighbourhood called The Poplars. At the entrance to this complex are bus stops on both sides of Highway 101. Bus users therefore have to cross the highway to catch the bus, or to return home. There are also vehicles turning into and out of this complex. A public telephone is located at the entrance immediately adjacent to the highway. The posted speed limit is 80 km/h in this location, having transitioned from 60 km/h leaving Gibsons just east of this area. The exhibit below shows the access to The Poplars and the bus stops on Highway 101. For the above reasons, it is recommended that the 60 km/h posted speed limit zone be extended to just beyond Burton Road (east), and that additional pedestrian warning signs be erected on both sides of the highway. Alternatively, the Ministry should consider implementing a formal crosswalk at this location if pedestrian volumes warrant it. There is the likelihood that pedestrian volumes will increase if this crossing is made safer, as more people choose to use the more accessible bus stops Increase Capacity and Number of Rack-Equipped Buses To encourage multi-modal options, BC Transit should provide an increased service of rack-equipped buses, including smaller community buses where feasible. All the larger buses currently can carry two bicycles, with options to carry additional bicycles being investigated by BC Transit. The fear of cyclists that the bus will not have space for their bike deters cyclists from choosing to cycle, given the current long headways between buses should they have to miss one. Also, due to the bicycles interfering with the bus headlights, no bicycles are carried at night, further reducing cycling as a reliable commuter option Provide Secure Bicycle Parking and Facilities Surveys have indicated that the public is willing to try alternative modes of transportation, particularly cycling, but are concerned about the security of their bicycles at their destination. It is recommended that secure bicycle parking in the form of racks be provided at all educational institutions, public facilities such as community centres, commercial areas and at strategic bus stops close to shopping centres for example. The initial bike lockers placed at Roberts Creek Road and Highway 101 are an example of such lockers. August 2011 Page 86

99 Other municipalities have offered rack installation on a cost-share basis with local businesses and this may be an option for the Regional District, municipalities and MoT to pursue actively with BC Transit Encourage Bicycle Rentals There are limited opportunities to rent bicycles on the Sunshine Coast. There are business opportunities for new and existing businesses (kayak rentals and bike stores) to provide this service. The establishment of a network of rental outlets to allow cyclists to rent bicycles in say Gibsons, and return them in Sechelt for example, will further encourage bicycle rentals. Another option is to establish self-serve bicycle rental options, such as Yellow, Bixi or Velib Bikes as found in North America or Europe Encourage Local Safe Routes to School Committees There are several examples in BC and across the country of neighbourhood and school initiated programs which have successfully changed local attitudes towards traffic management in the vicinity of schools. To arrest a downward spiral of traffic hazards created by parents dropping off and picking up their children, Green Communities Canada created the "Active and Safe Routes to School" project which has been hugely successful. It is recommended that neighbourhood associations or parent-teacher associations in the District be encouraged to initiate programs in their neighbourhoods. Resources include greencommunitiescanada.org, saferoutestoschool.ca, canadawalks.ca, and hastebc.org. A particular area of concern is in Gibsons and the intersection of Gibsons Way, School Road and North Road. The three schools in the immediate vicinity result in high pedestrian volumes on the west leg of the intersection. A crossing guard assists these pedestrians. During ferry traffic surges, there is a conflict between the pedestrians and ferry traffic turning right out of North onto Gibsons Way. The Gibsons Bypass, presented in the next section, will reduce the degree of this conflict Improved Lighting Low level solar powered lighting should be provided along the highway to improve the safety of all users. Such lighting can often be attached to existing telephone and hydro poles where they follow the road alignment. Enhanced lighting will also encourage more people to opt to walk as it will increase their perception of safety and improve visibility of the walking surface. The implementation of such lighting should focus on road intersections and driveway access where potential conflict might occur, and where pedestrian volumes are higher Develop Comprehensive Map on SCRD Website and Printed Brochures At present, there is no centralized source of information about cycling and hiking on the Sunshine Coast. Several different websites offer local information which is useful for those who already know which area they want to visit. To actively encourage active transportation throughout the region, we recommend that the Regional District develop a brochure and page on their website which provides maps and information about existing and planned cycling routes, mountain bike trails, recreational pathways, and hiking trails in the Regional District Develop Tourist Maps/Information There is significant demand for information about cycling routes and hiking routes on the Sunshine Coast. To promote the existing facilities more effectively, the development of a tourist map is recommended, showing bicycle and hiking routes and other bicycle August 2011 Page 87

100 facilities (i.e. campgrounds, bike stores). This should include trails around the urban areas and hiking trails and access in the rural areas. Mountain bike trails should also be included on these maps. These maps should be provided at the ferry terminals, at the bus shelters at the ferry terminals, on the ferries and at other tourist outlets on the Sunshine Coast Increase in Funding In 1995, it was decided to inject up to $100,000 of collected local taxes to bicycle infrastructure in Areas B to F. This amount has not changed since then. Given the several advantages to be gained from providing improved alternative transportation facilities, as well as the health benefits associated with active transportation modes, increasing the annual tax contributions up to $300,000 per year is justified, and should be adopted without delay. Other ongoing funding sources such as the gas tax should be continued to be utilized to augment community contributions Establish a Regional Alternative Transportation Advisory Committee (ATAC) Although there is a very active cycling community, there is no opportunity for cycling advocates to express their concerns and contribute their suggestions for the region as a whole. There is, as a result, a missed opportunity to access a body of expertise. This applies to other alternative forms of transportation, including pedestrians, carts, wheelchairs, etc. It is therefore recommended to establish a Regional Alternative Transportation Advisory Committee affiliated to the SCRD to assist with coordinating bike and walking path planning and construction between the Electoral Areas and municipalities. The ATAC can also assist the MoT to prioritize shoulder widening projects versus maintenance needs, as discussed earlier (Section 9.5.1). Recommendation 1. There are several initiatives detailed above which, with the collective buy-in from all authorities on the Sunshine Coast, can significantly advance active transportation in the region. This will not only result in more local active transport trips, but also influence visitors to the Sunshine Coast to choose cycling as an alternative to their car. From a local business perspective, there is the opportunity for bicycle rental businesses to be located throughout the corridor. 2. The Regional District should immediately initiate a regional Alternative Transportation Advisory Committee to assist with the planning, prioritization and construction of bicycle and walking paths throughout the entire region with the MoT and with participation from the Electoral Areas and municipalities. One of the first discussions should be to advise the MoT on the preferred approach to the current shoulder widening projects (1.5 m scab-on vs. 2.0 m reconstruction). 3. The Ministry consider extending the 60 km/h speed limit zone outside Gibsons to beyond The Poplars for pedestrian and traffic safety reasons. August 2011 Page 88

101 9.6 Gibsons Bypass Options The rationale for a form of bypass in Gibsons/Elphinstone was presented earlier in Section 7. This rationale is now developed further, leading to various options, including short, medium and long term alternatives and recommendations. The options presented below include: 1. Sunshine Coast Highway extension 2. Interim alternative route on Reed Road 3. Cemetery Road alignment In addition, other local network considerations are subsequently presented. As mentioned previously, the ultimate ferry to ferry extension of a bypass highway is not a priority of the Province given more pressing road improvement needs where there are higher traffic volumes in many other parts of the Province. This option is therefore not discussed further in the study. As sections of the bypass get implemented, the existing sections of highway which are bypassed may fall under municipal jurisdiction and serve primarily local and collector road functions. At the time of consideration of handover, there will be a need for consultation with the Ministry of Transportation and Infrastructure on costs associated with roads divested to municipalities, if the municipalities so choose Sunshine Coast Highway Extension from Stewart Road to the Vicinity of Highland Road As seen in the Elphinstone OCP Road Network Plan (Figure 9.10), an extension of the Sunshine Coast Highway westwards from its current tee intersection at Stewart Road is shown. The extension shows an interchange connection to Payne Road, and a more westerly connection to the vicinity of Highland Road. This 5 km long extension remains a logical long-term configuration of the Sunshine Coast Highway however is estimated to cost in the region of $20 million due to the topography and other challenges. Further consideration of this highway extension is subject to detailed planning being undertaken with public consultation with the West Howe Sound, Elphinstone, Gibsons, and Roberts Creek communities. This planning should be started at the earliest opportunity in order to begin the acquisition of right of way at the time of subdivisions and other development opportunities Interim Alternative Route on Reed Road Road Network Considerations The Gibsons OCP road network (Figure 9.11) reflects Reed Road as a Major Arterial running east-west. Payne Road is also a Major Arterial running north-south. As stated earlier, Gibsons Way is currently a 2 lane cross-section. North Road is also a Major Arterial running north-south, and currently carries the majority of ferry traffic both to and from Langdale. North Road has primarily residential accesses on it. Payne Road also borders residential properties towards Reed Road, however, closer to Gibsons Way, the land use is commercial retail. Payne Road was realigned to intersect Pratt Road and a retail strip mall is located on its western side. This is seen in Figure August 2011 Page 89

102 Figure 9.10 Elphinstone OCP: Road Network Plan August 2011 Page 90

103 Sunshine Coast Regional District Figure 9.11 August 2011 Gibsons OCP: Major Road Plan Page 91

104 Based on the existing and future land development on Payne, and especially closer to Gibsons Way, routing bypass (ferry) traffic to Payne Road will result in similar traffic conflicts as are currently being experienced on Gibsons Way, thereby only relocating the current traffic conflicts from Gibsons Way to Payne Road and not solving the problem in the medium to long term. It is therefore recommended that any proposed bypass, as described in Section 9.6.1, should ultimately connect back to Highway 101 beyond those areas already under development in order to ensure the current traffic problems are not simply duplicated and/or relocated to other links in the road network. As a minimum, a long term bypass connection should link from Stewart Road to the vicinity of Highland Road. This will allow for substantial future land development without impacting the primary purpose of the bypass, which is to separate the conflicting trip purposes in Gibsons and Elphinstone and thereby further relieve congestion. Henry Road is the location of important commercial organic farming and no formal routing of traffic to Henry Road should occur. A Reed-Payne Interim Alternative Route Previous reports rule out the options of a Reed-Henry bypass route, however local Sunshine Coast residents are already using this route as a bypass to avoid Gibsons Way. This route was also previously sign-posted as the ferry traffic route. The primary objection to this route from residents living on Reed and Henry is speeding and the impact on organic farming on Henry Road. It is also recognized that as long as this route is not signposted as a bypass, only locals and regular visitors to the Sunshine Coast will be aware of this route option. Reed Road is however already designed as a Major Arterial, and therefore lends itself to function as an alternative route, noting that the south side of the centreline of Reed Road is Gibsons jurisdiction and the north side is Regional District/MoT jurisdiction. The implementation of the Upper Gibson Neighbourhood Plan will result in additional trips on Reed Road, further motivating its future upgrade. Residential density along Reed is currently low, and is planned to remain low except for the south side of the road between Payne and North Roads, with significantly fewer accesses compared to higher density areas. As land-use density increases in Upper Gibsons and regional traffic increases, future upgrading of Reed Road could either include a frontage road system to help consolidate access conflicts to only two or three locations, or a landscaped central median will enforce right-in, right-out accesses. Intersection curb extensions could be used to reduce traffic speeds. It is however unlikely that a frontage road system can be achieved without significant property acquisition and is therefore not considered to be a viable option. A comparison between a Payne Road versus Henry Road north-south bypass connection to Reed Road is presented in the report Gibsons Bypass Extension, Planning and Design Study (October 2005). This study was based on extending the Sunshine Coast Highway westwards from Stewart Road to the vicinity of Highland Road, with an interchange connection to Payne, and rejected the Henry connection option based on the steep grade north of Reed up to the future bypass. The study assumed the bypass extension as planned would go ahead and it therefore did not consider Reed Road as a short term alternative route option. It is noted that the Elphinstone OCP Transportation Plan (Map 5) shows Henry Road as an Existing Major Collector, or to be developed as a major collector, as shown in Figure The Reed-Payne interim alternative route option is conceptually shown in Appendix I, including a proposed roundabout at the intersection of Reed and Payne. (Additional August 2011 Page 92

105 design will be required to determine any potential property impacts. If these prove severe, there is the option to restrict this route to passenger vehicles only, with trucks routed via Gibsons Way, thereby reducing the size of the required roundabout.) The roundabout on the interim alternative route will traffic calm the route while still retaining easy access south of Reed Road. The roundabout will also accommodate future land development traffic on Reed without the need for costly signalization. A short-term, Reed-Payne interim alternative route option has several advantages: It separates conflicting trip purposes. It reduces through traffic on Gibsons Way. It can be constructed at significantly less cost. It can be implemented in a significantly shorter time frame. It does not provide expensive infrastructure that is only required approximately every two hours outside of July and August. Reed Road is already designated as a major arterial. It allows for additional future development in both Gibsons and Elphinstone. It retains the option to access the commercial opportunities on Payne Road. It does not eliminate a future bypass option. In summary, the interim alternative route option meets both Gibsons and Elphinstone s objectives, as well as the objectives of the remainder of the corridor in being able to move to and from the ferry terminal with minimum delay and conflicts. Staging The establishment of the ultimate Gibsons bypass has several staging options. These are as follows: Immediate: The Ministry has installed a traffic signal at the North Road, Reed Road intersection. In order to separate the southbound, right turning movement from North Road into Reed Road, a right turn lane must be constructed. According to Ministry guidelines (BC MoT Supplement to TAC Geometric Design Guide), the length of this deceleration lane should be 80 m, including lane tapers for a 50 km/h design speed. Short term: Construct a roundabout at the Reed and Payne intersection, subject to ALR impact investigation. Long term: Construct the Sunshine Coast Highway Extension from Stewart Road to the vicinity of Highland Road Cemetery Road Alignment Cemetery Road has been suggested as an alternative to Reed Road as a bypass route. There are several reasons for not recommending Cemetery Road. These reasons are listed below: The intersection of Cemetery Road at North Road is located on a horizontal curve. There are also driveways to residential properties on this curve, opposite Cemetery Road. To make this intersection safe for higher traffic volumes on Cemetery Road, a signal or all way stop control would be required. The approach sight distance from Stewart Road is restricted by a sag vertical curve just east of the intersection. This restricts sight distance for vehicles both August 2011 Page 93

106 exiting Cemetery Road and approaching from Stewart Road, usually at high speed. The gradient on Cemetery Road is very steep. This will result in an increase in noise levels as vehicles accelerate by this hill, especially trucks. The section of Payne Road between Cemetery and Reed also has a steep gradient. Cemetery Road is currently a low traffic, residential collector road. Introducing bypass traffic onto this road is likely to be met with negative community response versus Reed Road which is already being used by several community members as a bypass route. The above presents some of the reasons for rejecting Cemetery Road as an alternative to Reed Road Additional Network Considerations Pratt/Payne Road The Gibsons Way bypass option presented above focuses on the north side of Gibsons Way, however reference to both the Elphinstone OCP (Figure 9.10) and the Gibsons OCP (Figure 9.11) highlight other developments and road network considerations that will impact Highway 101. At Gospel Rock, the initially planned 300 unit development is proposed to be increased to between 750 and 850 units. Given this development s location, traffic generated from it can only distribute either to the north or east. The average trip generation is 0.5 trips per peak hour for low-rise apartments and townhouses, meaning an increase of about 250 vehicle trips on the road network in the peak directions due to the increase of 500 units. If half of these trips use Pratt Road, about 125 additional vehicles will then use the intersection at Highway 101 in the peak hour. An analysis of this intersection to identify mitigation, such as upgrading alternative access routes and other measures, should be done to accommodate the impact of this increased development size. However, if there is a seniors component to the development or similar, i.e. residential types that did not specifically generate vehicle trips, then the impact is reduced. Also, if a bus were routed past the development, this too would reduce the impact. The development could also provide bicycle facilities, sidewalks, and similar alternative transportation facilities aimed at reducing SOV use. At the time of writing, the Ministry had begun an analysis of the current performance of this intersection, to determine what mitigation measures are required in the immediate term. Harry Road The Elphinstone OCP Road Network Plan (Figure 9.11) shows a proposed future extension of Harry Road to intersect Highway 101 in the vicinity of The Poplars mobile home park. This residential area is contained to the west by Walker Creek and to the east by Chaster Creek, with the only existing road access from the south. This not only forces residents to drive longer distances to access Highway 101, but also restricts access to the bus services. As indicated on the OCP Road Network Plan, the exact alignment or alternative route is to be determined at the time of development of the adjacent land parcels, and is to include thorough community consultation. The need however for this network link is supported in that it reduces travel distances and therefore GHG emissions, and improves access to transit, enabling a reduction in single occupancy vehicle trips. August 2011 Page 94

107 9.6.5 Gateway Opportunities A long term bypass from Stewart Road to the vicinity of Highland Road enables the consideration of gateway type access locations on Highway 101 into both Gibsons and Elphinstone. The sections of Highway 101 at North Road and east of Chaster Creek are more urban in nature, requiring lower travel speeds, in contrast to the more rural environment outside of Gibsons and Elphinstone. A gateway feature helps establish this transition. Typical gateway features are traffic signals or modern roundabouts. A signal has already been installed at the North (Highway 101) / Reed intersection. In the long term, and with the extension of the Sunshine Coast Highway bypass from Stewart Road to the vicinity of Highland Road, a gateway roundabout could be located at the Highway 101 / Veterans Road intersection. Modern roundabouts are the MoT s preferred form of intersection control, are designed to accommodate trucks of all sizes, including logging trucks, and properly channel vehicles into and out of the roundabout. To enhance these gateway features, the central island of the roundabout can be landscaped and signposted announcing Gibsons and Elphinstone, with through and local traffic directed out of the roundabout accordingly. A graphic of a proposed gateway feature for Gibsons is shown below. The Highway 101 / Veterans Road roundabout is shown in Appendix I and would eliminate the probable future need for a traffic signal at this location and helps retain highway mobility. It also allows for the future development of the area south of the highway along Veterans. By the upgrading of the Johns Road link south of the highway as shown, access to the highway for the future development along Kings is also addressed without introducing yet another intersection onto the highway, further ensuring highway mobility is retained in future. A traffic analysis will be required to confirm the level of performance of the Highway 101/Veterans roundabout, prior to construction. If the analysis demonstrates a failing condition, then this roundabout should be timed to coincide with the construction of the Sunshine Coast Highway Extension from Stewart Road to the vicinity of Highland Road, as detailed in Section August 2011 Page 95

108 Benefits of Roundabouts Less Traffic Delays Roundabouts carry more traffic with less delay than traditional signalized intersections. This operational benefit is the reason why roundabouts are considered in the first place. Safety Roundabouts have been shown to reduce fatal accidents by as much as 90% and injury accidents as much as 75%, while pedestrian crashes reduced by 30-40%. The reduction in accidents is attributed to slower speeds and reduced number of conflict points as shown in the graphic below. This is also a reason why roundabouts are the preferred type of intersection control in areas with an aging population. Reduction in Pollution and Fuel use By yielding at the entry rather than stopping and waiting for a green light, travel delay is significantly reduced. A reduction in delay corresponds to a decrease in air pollution and fuel consumption. Low Maintenance Eliminates maintenance costs and electricity costs to approximately $5,000 per year. Service life of a roundabout is 25 years vs. 10 years for signal equipment. Aesthetics The central island provides an opportunity for landscaping and beautifying of the intersection. Roundabouts provide a gateway and an entry treatment to neighbourhoods. A survey was undertaken by the US National Cooperative Highway Research Program to determine public acceptance of modern roundabouts at 22 locations in 11 States. The charts below demonstrate how public acceptance of roundabouts changes as they become familiar with their use and realize their overall benefits. August 2011 Page 96

109 Recommendation 1. Construct a southbound, right turn lane on North Road at Reed Road. 2. Initiate the next level of design of a roundabout at the Reed and Payne intersection, to determine possible ALR impacts. 3. Planning for the Sunshine Coast Highway extension from Stewart Road to the vicinity of Highland Road be started in order to finalise an alignment and then begin the acquisition of right of way at the time of subdivisions and other development opportunities. August 2011 Page 97

110 9.7 Transit Transit services on the Sunshine Coast are primarily provided by BC Ferries and BC Transit. Overviews of their respective services have been provided earlier in Section 7. This section of the Integrated Transportation Plan will focus on improvements in services and other recommendations aimed at making these services more attractive so that a mode shift away from the private vehicle can be achieved. This does however required three separate focus areas: The first focus is on local transit operations, in other words, those trips that start and end on the Sunshine Coast. This internal service currently makes up 70% of BC Transit s ridership volumes. The second is focused on local transit operations to and from the Sunshine Coast, either from Langdale to Horseshoe Bay, or Earl s Cove to Saltery Bay. This external service currently makes up 30% of BC Transit ridership. The third is the integration of the first two, thereby achieving synergies that address all trip purposes. There is no obvious order of priority in addressing the above focus areas. This is because the local communities are all negatively impacted by the ferry traffic surges detailed in Section 7.3, so reducing ferry vehicle volumes has an overall positive impact on congestion, safety and GHG emissions. However, improving the internal service presents the greatest opportunity to achieve a mode shift away from the private vehicle for the Sunshine Coast community, which is the focus of this study. Advocates of transit suggest that directing funds that would have been spent on road infrastructure to the expansion of transit operations instead would reduce the need to provide additional roadway capacity. While this viewpoint is to be supported, the nature of development and the economic base in the Sunshine Coast does require the existing limited road infrastructure to be maintained and improved. There is a need for additional long-term funding for expanded transit service(s) when undertaking the next Transit Operating Plan with BC Transit. The current high level of ridership is an indication of the willingness by the local community to use the bus service, and considering higher gas prices in future, the shift to transit is likely to be even stronger. The only higher density areas on the Sunshine Coast are in Gibsons, Elphinstone and Sechelt. Residential properties are then spread out along the entire 80 km corridor at densities that make provision for a regular transit service to all these areas so uneconomical to the point of being unfeasible. A significant proportion of the economy is also home-based business. This means irregular working hours and travel patterns that are not limited to peak periods for this sector of the economy. In fact the opposite is likely to be the case where these travellers probably avoid travel in peak periods, and their need to travel is also random. As a result, increasing transit frequencies over the whole day would enable higher transit use by this sector. The greatest opportunity to achieve a mode shift is in the more predictable customer markets, the majority of which are directly affected by the internal service. These markets include: August 2011 Page 98

111 Daily commuters (internal service) Ferry passengers (including tourists) (external and internal services) School children (internal service) Fixed income, non-working residents (internal service) Several options can be explored to increase transit use and thereby reduce the amount of single occupant vehicles on the Sunshine Coast. Options include: Increased bus service frequency to enable more flexible travel patterns Improve service reliability Optimizing the current schedule integration of BC Transit and BC Ferries Dissemination of transit information on the ferries A corridor Park & Ride Improved schedule adherence and reliability of the local bus service will attract more local residents to use the bus service. As ridership grows due to better trip predictability, so the 70/30 split could shift to 80/20 (local users vs. ferry commuters) and more, meaning increased revenues for BC Transit to fund additional services, and less private vehicle use on the Sunshine Coast. Other short term proposals discussed in Section include: Selling day pass bus tickets on the buses and ferries Making small bus schedule changes to better accommodate and thereby attract more internal, daily commuters, which offers a more secure funding stream Install solar powered lighting at some bus shelters, possibly funded by companies in return for advertising space at the shelters Increased Bus Service Frequency and Reliability Internal Service One of the biggest obstacles to getting people out of their cars is the loss of flexibility, reliability and choice. A motorist can travel at whatever time they choose, can time their trip according to meeting and appointment times, etc., and can easily change their travel pattern. Flexibility and reliability can be significantly increased by the availability of a more frequent bus service and adherence to the bus schedule. BC Transit s Route 1, the backbone of the Sunshine Coast bus service, operates at frequencies ranging from 30 minutes to 75 minutes. The schedules for Routes 1 to 4 are provided in Appendix J. Being the backbone of the service, the reliability of Route 1 and its adherence to its published schedule is essential to avoid knock-on effects on this and the other routes. While the service operated on the Sunshine Coast has one of the highest usage ratings in Canada, this is likely partly due to the infrequency of the service, therefore concentrating passengers into fewer buses, and the nature of the Sunshine Coast whereby there is only one backbone route, Route 1, which runs along the only corridor road. This effectively creates a captive market for Route 1, compared to other regions where there is often more than one bus route option to get from origin to destination, Sechelt to Gibsons in this case. This further highlights the importance of schedule adherence to retain and attract more passengers. Route 1 is integrally linked to the ferry service at Langdale terminal. Therefore the only known risk to BC Transit s Route 1 bus schedule adherence that exists on a day to day basis and at all hours of the day is whether or not the ferry is running on time. This is discussed further in Section August 2011 Page 99

112 Again, increasing service frequencies is BC Transit s highest priority, including on Route 3, the Sechelt Arena route, where a more frequent service will better serve float plane passengers as discussed in Section 9.9, Air Transport. The only obstacle to achieving a higher frequency bus service is funding. In 2012, BC Transit will be revising their business plan for the bus service on the Sunshine Coast, which presents the first opportunity for the SCRD Transportation Department to best motivate for additional funding. In the interim, continuing to focus on service improvements is BC Transit s objective. This should include: Transit schedule integration Customer needs survey Alternative routing considerations BC Transit and BC Ferry Schedule Integration External Service Convenient, reliable and integrated scheduling of BC Transit, BC Ferries and TransLink can best facilitate the use of transit instead of their vehicle by commuters to the mainland and visitors from the mainland. Coordination between BC Ferries and the transit systems feeding the terminals at both Langdale and Horseshoe Bay helps create reasonable transfer times and thus effective integration between the two transportation modes. This is the basis on which the existing Route 1 bus schedule has been determined. The transfer times between the bus and ferry services is shown in Table 9.4. The table shows the September to February ferry arrival and departure times at both the Langdale and Horseshoe Bay ferry terminals, as well as the respective BC Transit and TransLink bus schedules. The corresponding transfer times are then shown. Reading the columns from left to right, the bus arrival times at Langdale are shown and the next ferry departure times, with the resultant transfer time in the shaded column. Similarly, ferry arrival times at Langdale are shown, with the next bus departure times, and the resultant transfer times. The same information is shown for the Horseshoe Bay terminal. In general, there is good coordination between the transit bus services and the ferry service at both terminals. Transfer times at the Langdale terminal range from 13 to 23 minutes to board the ferry after arriving at the terminal by bus, and 10 to 15 minutes to board a bus having arrived by ferry. The transfer times vary more at the Horseshoe Bay terminal and there are significantly more buses. Transfer times range from 12 to 40 minutes to board the ferry after arriving by bus, and 11 to 35 minutes to board a TransLink bus having arrived by ferry. If all services are running on schedule, these transfer times are suitable, however it can happen that as the day progresses, the ferry service can fall more and more behind its schedule. This is very much dependent on the number of vehicles on each trip. If the ferry is only 60% full, the ferry schedule is generally adhered to. If ferries are running behind schedule, a person may miss their transfer and wait significantly longer as seen in the table. For example, if a person is on the ferry scheduled to arrive at 18:10 at Langdale, and this ferry is 15 minutes late and the 18:20 departing bus does not wait, that individual will be required to wait 70 minutes for the next bus. Buses generally do not delay their departure from the terminal for longer than 10 minutes, as then the entire bus schedule experiences domino-effect delay. It is recommended that, if the corridor wide schedule allows, the transfer times between ferry arrival and bus departure at Langdale be increased to 20 minutes minimum. This will enable a more reliable transfer for ferry passengers to catch the next bus. August 2011 Page 100

113 Alternatively, a more frequent bus service with 30 minute intervals throughout the day will also assist in reducing transfer times in the event of a ferry running late. Table 9.4 Ferry and Bus Passenger Transfer Times at Ferry Terminals Langdale Ferry Terminal Horseshoe Bay Ferry Terminal Time BC Transit BC Ferries BC Ferries BC Transit TransLink BC Ferries BC Ferries TransLink Minimum Transfer Transfer Transfer Scheduled Scheduled Scheduled Transfer Scheduled Times Scheduled Time Scheduled Scheduled Scheduled Times departure departure departure Times arrival time (minutes) arrival time (minutes) arrival time at arrival time departure time (minutes) time from time from time from (minutes) at terminal at terminal terminal at terminal from terminal terminal terminal terminal 5:00-5:59 5:57, 5: : :00-6:59-6:20 23, : :10-7:00-7: :48 7: :00 7: :00-8:59 8:04 8: :00 8: :13, 8: :08, 8:25 68, 85 9:00-9:59 9: : :00, 9:43 9: :00 9:00, 9:15 0, 15 10:00-10:59 10:06 10:20 78, 14 10:00 10: :13, 10: :00, 10:25 60, 85 11:00-11:59 11: : :01, 11:43 11: :00 11:00, 11:15 0, 15 12:00-12:59 12:02 12:20 71, 18 12:00 12: :13, 12: :00, 12:25 60, 85 13:00-13:59 13: : :01, 13:43 13: :00 13:00, 13:15 0, 15 14:00-14:59 14:06 14:20 62, 14 14:00 14: :13, 13: :00, 14:25 60, 85 15:00-15:59 15: : :00-16:59 16:12 16:30 65, 18 16:10 16: :00-17:59 17: : :00-18:59 18:09, 18:15 18:30 82, 21, 15 18:10 18:17, 18:20 7, 10 15:01, 15:18, 15:43 16:01, 16:19, 16:34, 16:48 17:08, 17:18, 17:49 18:08, 18:19, 18:45 15: : :00, 15:15, 15:30 16:00, 16:10, 16:30. 16:55 5, 20 50, 60, 80, : :10 17:15, 17:45 5, : :00-19:59 19: : :04, 19:18 19:25 7, 21 19:10 19: :00-20:59 20:07 20:20 75, 13 20:05 20: : : :00-21:59 21: : :18 21: :00 21:25 25 Footnote: To read this table properly, refer to the relevant text in report explaining Table Removing Obstacles to Bus Schedule Adherence Route 1 is integrally linked to the ferry service at Langdale terminal. Therefore, as stated earlier, the only known risk to BC Transit s Route 1 bus schedule adherence that exists on a day to day basis is whether or not the ferry is running on time. This was demonstrated in Table 9.4 which shows transfer times of either 10 minutes, or between 60 and 90 minutes. As soon as the number of vehicles using the ferry increases, as is typical in busier warmer months, so load and unload times become longer, and gradual ferry schedule creep occurs through the day. To avoid too significant deviation from their own schedule, buses seldom wait longer than 10 minutes for a late ferry. The On Time Performance chart provided by BC Ferries is shown in Figure Note that on time means the ferry is operating within 10 minutes of the scheduled time, in other words, transferring passengers at Langdale are still likely to catch their connecting August 2011 Page 101

114 bus. As can be seen, on time performance over the summer months improved from 50% to 80% between 2009 and 2010, and was generally worse in other months. It is assumed the increase in on time performance is due to an increase in the number of ferries operating over the summer period and improved loading and unloading times. Outside of the summer months, if a ferry falls behind schedule there is no way for BC Ferries to get back on schedule since only one ferry does a return trip. Figure 9.12 BC Ferries on Time Performance Chart At the same time, BC Transit buses similarly operate on a return trip basis, so the buses cannot wait for ferries beyond 10 minutes. If they do wait, this negatively affects BC Transit s local, internal trip customers elsewhere in the system, which make up 70% of their customers. These customers could then perceive the bus service to be unreliable, and could prompt existing users to switch back to their vehicles, or prevent new users from using the service, all as a result of ferry delays. Removing this risk from the system will allow BC Transit to be in better control of its schedule, and therefore its reliability. There are two options to achieve this. One is to increase Route 1 frequencies to 30 minutes. The other option that was not supported by the stakeholders and transit operators, is to terminate some of the Route 1 buses on Gibsons Way, and introduce a ferry bus route that travels between Gibsons Way and Langdale. This would require passengers to transfer and does not take into account those passengers not taking the ferry. By increasing the Route 1 service to 30 minute intervals, the buses at Langdale can operate independently of the ferry service, and ferry passengers will only have a maximum of an approximately 20-minute wait if the ferry is running late. Other passengers taking shorter trips would not be required to transfer buses and would experience a more frequent, timely service Community Feeder Services Other service adjustments and expansions to consider include more local community feeder services, operated with smaller buses, which service and feed passengers to the primary routes, in particular Route 1. The Park and Ride option presented in Section expands this concept. August 2011 Page 102

115 9.7.5 Community Transit Needs Assessment Survey During the several stakeholder and community workshops held in preparing this Integrated Transportation Plan, the need for SCRD Transportation Department and BC Transit to better determine community transit needs became apparent. Given that the BC Transit business plan for the region will be revised in 2012, 2011 presents an ideal opportunity to conduct this survey, and better guide future planning. Key information to determine is from where to where, and at what times, does the community wish to travel. As stated earlier, such a survey has not been used to design the current service, particularly Route 1, due to its only route option being Highway 101, and end destinations being Sechelt and Langdale. Survey information can be gathered in several ways, namely: On buses On ferries At visitor centers At schools At community centers Via rates bills On-line By telemarketing By newspaper inserts By advertising (raising awareness of the survey and directing readers to it) Information gathered during the survey, combined with that presented in this section of the ITP, can significantly assist the Regional District s Transportation Division and BC Transit to increase ridership, with possibly less than anticipated funding. Recommendation 1. Conduct a community Transit Needs Assessment Survey. 2. The SCRD, Town of Gibsons, and District of Sechelt lobby BC Transit for increased funding. 3. The Regional District s Transportation Division generate alternative revenues and, to fund solar powered lighting at shelters, seek approval to allow advertising at bus shelters. This advertising should target bus shelter users and not bypass traffic. 4. BC Transit engage with the Regional District s Transportation Advisory Committee when formulating their revised transit plan in Increase Route 1 bus schedule frequency to Langdale to every 30 minutes. 6. Provide more local community feeder services. 7. BC Transit establishes a consistent, real-time communication channel with BC Ferries to assist BC Transit to better communicate with its customers. 8. The Communications Plan provided in Section 11 be adopted BC Ferry Operations BC Ferries operates Routes 3 and 7 to and from the Sunshine Coast. These are the Horseshoe Bay Langdale and Earl s Cove Saltery Bay routes respectively. Opportunities to best integrate the ferry operations with the local bus transit service operated by BC Transit include: August 2011 Page 103

116 Improved communication between BC Ferries and BC Transit as regards to the adherence to schedule of every ferry sailing. Improved communication on the ferries whereby the availability of the local bus service is announced to passengers on more than one occasion. Making available BC Transit bus tickets, and especially day passes, on the ferries for ferry passengers to buy. These could be either sold at the existing bus ticket counter on the ferries or at the shop, with the shop owners receiving an administration fee for providing this service. To simplify matters, only day passes might be sold. Clearly displaying transit bus service and schedule information on the ferries, and having announcements directing passengers as to where to find this information. Providing bicycle facilities on the ferries whereby cyclists can safely and securely store their bicycles. In addition to the above, similar announcements and bus ticket sales could take place at both Horseshoe Bay and Saltery Bay. More prominent promotion of the integrated bus service available on the Sunshine Coast could be included on the BC Ferries website. Ferry Advisory Committees (FAC) BC Ferries has established separate Ferry Advisory Committees for each of their routes, made up of senior ferry representatives specific to each route and local stakeholders. These committees meet twice a year, and are the forum to address all ferry and community related issues. Several of the above listed points have been brought to the attention of the Route 3 FAC via a technical memorandum submitted to the local stakeholder representatives. A copy of this memorandum in contained in Appendix K. Going forward, it is proposed that the SCRD s Transport representative assume the responsibility to work closely with BC Ferries and the FAC s to immediately set in motion steps to implement those recommendations listed above. Each of these are important components in facilitating the overall objective of achieving a significant mode shift away from private vehicle usage by streamlining the integration of ferry and bus transport services. Recommendation 1. The content of the technical memorandum, as well as additional recommendations made in this report, should be addressed with BC Ferries and also be included on the FAC meeting agenda to ensure these issues remain actionable items until implemented. It is proposed that the SCRD s Transportation Division representative assume this responsibility. 2. The Communications Plan provided in Section 11 be adopted Corridor Park & Ride Objective Implement a ferry to ferry transit service, providing a transport alternative for local trips, commuters, and tourists. One of the key barriers to achieve a reduction in private vehicle usage is lack of choice. Without choice, people are obliged to use private vehicles, depending on the trip purpose and the persons ability to use active transportation options such as cycling or walking. A corridor Park & Ride service integrated with the existing bus services provides one option of choice. Eleven general locations have been suggested along the corridor, August 2011 Page 104

117 located at strategic intersections or at existing bus stops. These are shown in Figure Each location has an area that could initially serve as a Park & Ride site, in that each is clear of vegetation and relatively level. While a community consultation process is recommended prior to any implementation, these sites can be used as trial-run locations before any significant infrastructure be provided such as an asphalt pavement and bicycle lockers. As a minimum, bus shelters should be erected. The principal is that local communities along the highway, including those residents living outside a reasonable walking distance to a bus route, and in particular those with no transit options north of Halfmoon Bay, could access the Park & Ride sites by either driving, cycling, walking or by being dropped off. A bus would then come past and collect and drop off passengers at these locations. These stops are proposed to be located along the highway to minimise travel time for users of the service and increase service reliability. The Park & Ride service could be operated by any of the following, either individually or in combination: BC Transit Malaspina Express The proposed Pender Harbour service School bus charter company Any other provider contracted through an open bid process The ideal corridor service will not require passenger transfers, or will need transfers to be kept at a minimum to ensure the service is convenient and time efficient. Since BC Transit s Route 1 already provides a service from Sechelt to Gibsons, one transfer location in Sechelt seems reasonable. To achieve the objective of the Park & Ride corridor concept however, BC Transit would need to provide an express type service along Highway 101 between Sechelt and Gibsons. Another option for this Park & Ride service is to operate it on a Dial-a-Bus basis. This is a cost-effective way to provide an as-needed transit service when ridership is low. The service would require customers wanting to use the Park & Ride service to call ahead and request that the bus come and fetch them at their selected Park & Ride stop location. They could request the return trip at the same time. This would then guarantee the caller that the bus would come. A service like this could work well for the local community and eliminate bus trips if no call requests are received, however would not be convenient for tourists or visitors to the Sunshine Coast who would be unfamiliar with the Dial-a-Bus concept. This concept currently works well in places in Edmonton, where the City of St. Albert provides this service which connects with the commuter buses going into Edmonton. The implementation of the Park & Ride service has its challenges, however provides a real, workable option to reduce the reliance of private vehicle usage by motorists north of Halfmoon Bay, who currently have no other choice. During the Stakeholder Workshops and Open Houses, there was clear support for the establishment of a corridor Park & Ride service. The implementation of the Park and Ride service can be done in stages. Key strategic locations, such as Garden Bay Road and Madeira Park can be used as trial locations, and the local community be invited to join the planning process to facilitate buy-in and ownership of the concept. August 2011 Page 105

118 Sunshine Coast Regional District Figure 9.13 August 2011 Suggested Corridor Park & Ride Locations Page 106

119 BC Transit has expressed the desire to be involved in Park and Ride related discussions at the outset, which involvement is encouraged. Recommendation 1. Set up a project team tasked with planning and implementing a Park & Ride service, possibly in stages. 2. Involve local communities to identify possible alternative, more suitable Park & Ride locations and to identify what times of day they would use such a service. 3. Local bus operators, in particular those operating the school buses, should be invited to participate together with BC Transit. 4. Conduct an in-depth community survey to canvas support for a Park & Ride service. From this survey, estimated passenger volumes can be determined as well as an appropriate type and size of transit vehicle, and priority locations for a staged implementation process. 9.8 Ride Share Objective The majority of private vehicle trips are done with only the driver in the vehicle. For commuter trips, carpooling, or ride share, presents a significant opportunity to reduce the number of vehicles on the roads and provides a travel choice for motorists in areas not serviced by any other transit service. There are well-established ride share services in operation. In particular, the Jack Bell Ride Share service is aimed at matching people registered on their system who have the same or similar origins and destinations. This service is partly funded by TransLink. Another service available on the Sunshine Coast is the Sunshine Coast Ride Share calendar. This is coordinated in partnership with the Ruby Lake Lagoon Nature Reserve Society. This service enables motorists to put their intended trips on a Microsoft Outlook type calendar, thereby making visible those trips to other community members. Anyone planning a similar trip can then request to accompany that person on their trip. These trips are the more random trips, versus regular commuter trips, however any and all trips can be posted in the calendar. It appears that this website is not used much in spite of it being advertised on North Road northbound, just after Reed Road. The Sechelt Rider Share Program, CoastRide, is a "Registered Hitch Hiking" program currently running on the east side of Sechelt Inlet. Both people who want rides and those drivers who offer rides are required to register with their local community association. Drivers pick up and drop off riders at designated "CoSpots" in the communities and in downtown Sechelt. Both drivers and riders are required to carry photo ID cards. Details of this service can be found at An aggressive public awareness campaign promoting these service options could be undertaken, funded by the SCRD, Sechelt and Gibsons. With residential areas spread along the entire corridor and business centres concentrated in Gibsons and Sechelt, it is likely that the same commuter trips are taking place on a daily basis by single occupant vehicles. Making these motorists aware of the ride share options available can contribute to reducing congestion and vehicle emissions, increase social contact, and reduce August 2011 Page 107

120 vehicle operating costs. It is also reliable and convenient. Furthermore, it can provide a defacto scheduled transit service to low density areas, where passenger volumes will always be minimal. These types of services can also make use of the suggested Park & Ride locations presented in Section 9.7.6, and serve as a low risk trial of the Park & Ride system until a more formal service proves viable. Recommendation 1. The SCRD should coordinate a corridor wide marketing campaign promoting all ride share services available on the Sunshine Coast, including ride share opportunities to Greater Vancouver. 2. This campaign should be funded by the SCRD, Gibsons and Sechelt. 3. The campaign should include a monitoring component to determine its effectiveness and seek and publicise testimonials from users of these service offerings to help encourage use of these opportunities. 4. The proposed Park & Ride locations should be promoted as Ride Share pick up and drop off locations. 9.9 Air Transport Objective Air transport enables new business opportunities, provides employment and gives travellers to and from the Sunshine Coast additional travel choices. An overview of the air travel opportunities to the Sunshine Coast was outlined earlier in Section 7. The Strait of Georgia coastline has no sheltered bay areas in the higher density locations that would enable float plane terminals to be established (the bays making water conditions more predictable versus open sea). To make this travel option more attractive to tourists, the existing float plane operations in the Sechelt Inlet at Porpoise Bay need to be supported by a more frequent bus service. BC Transit s Route 3, the Sechelt Arena route as shown in Figure 9.14, currently passes the harbour, however only at 1.5 to 2 hours intervals. The float plane operators can then promote to its passengers the more frequent bus service, with its connections to the other BC Transit routes in Sechelt. Since these float plane services are operated on a charter basis, they are a quicker and more flexible alternative to the ferry service, however have very limited passenger capacity. If the daily float plane operations do increase, the emissions due to this increase must be compared against reduction in emissions as a result of these passengers not using a private vehicle on the ferry. The net effect though is likely to be an increase in emissions, which is contrary to the objective to reduce GHG emissions. August 2011 Page 108

121 Figure 9.14 Route 3 Sechelt Area The Sechelt District Airport presents other air transport opportunities. The planned lengthening of the runway at the airport is supported in this Integrated Transportation Plan, which considers not only GHG emissions and the environment but also the social and economic areas of sustainability. Without the planned runway extension, the current status quo is likely to remain for the foreseeable future. The extension, which will allow bigger airplanes to land, brings with it new opportunities, including tourism, business and, to some degree, industry. Other advantages of the runway expansion include: More flexible travel choices for the Sunshine Coast communities compared to the very restrictive travel options provided by the ferry service. Job creation as airport operations increase. An emergency evacuation alternative. A new business district and light industrial area could emerge supported by the airport. The eventual expansion of the land side terminal will lead to further job creation. Charter taxi service opportunities are created for airplane passengers. Recommendation 1. Seek funding to ensure the Sechelt District Airport runway expansion proceeds. 2. BC Transit investigate the possibility of providing a more frequent bus service to serve the float plane terminals at Porpoise Bay. August 2011 Page 109

122 9.10 Marine Transport Objective Marine transport can be used to move people, services and goods. It can also be used to move people up and down the Sunshine Coast coastline in the event of an extended closure of Highway Ferries Several decades ago, prior to the construction of the highway, a passenger ferry service operated between Vancouver and the Sunshine Coast, stopping at several locations along the coastline as it headed towards Powell River. This provided the only transport option to access parts of the Sunshine Coast. With increased vehicle ownership and reliance, and the completion of the highway along the length of the coastline, the demand and need for the coastal ferry service diminished, resulting in the current operations. At the first Stakeholder Workshop, the desire for a ferry service to Sechelt instead of the existing service to Langdale was mentioned on several occasions. Such a service was also considered as a way to reduce the ferry traffic surge effect on Gibsons and Elphinstone, in that traffic could distribute in three directions from Sechelt, versus the situation at Langdale. Trucks could similarly distribute on the road network, thereby prolonging the lifespan of the road infrastructure due to less pavement loading. While such a service has its advantages, it also has obstacles namely: Trail Bay on the Strait of Georgia cannot accommodate ferries due to wave and tidal movement without the construction of wave breaks and even then a study commissioned by the District of Sechelt concluded such a terminal would only be able to operate outside of the winter months (Sechelt Marine Access Memorandum, May 31, 2005). The longer ferry travel time between Horseshoe Bay and Sechelt, versus to Langdale, would require additional ferries for the route to operate an acceptable schedule. It is unlikely funding-wise that BC Ferries would be able to provide such a service even in the long term. Travel time between Gibsons and Sechelt would increase due to the ferry travelling at a slower speed compared to a vehicle Water Taxis Water taxi services provide essential transport from the Sunshine Coast mainland to the surrounding islands. As detailed in the overview in Section 7, water taxi services operate at docks listed below: Gambier Island: i. Gambier Harbour ii. Halkett Bay iii. Port Graves iv. West Bay Keats Island: o Eastbourne o Keats Landing Sunshine Coast: o Halfmoon Bay o Hopkins Landing Thormanby Island: o Vaucroft August 2011 Page 110

123 BC Ferries Route 13 operates from Langdale to Gambier Island and Keats Island. Although it has official route status with BC Ferries, it is privately operated. The use of the above listed docks is subject to SCRD and Transport Canada regulations. These regulations primarily address safety issues, noise control, alcohol use, littering and water craft mooring. Passengers are charged a fare by operating companies to use the service, with craft carrying in the order of 12 people, varying by dock and based on demand Barges Barges enable the movement of heavy equipment and bulk goods such as logs and building equipment. They are especially used to access those islands that are only served by water taxi or private boat. The pulp mill at Port Mellon on Howe Sound makes use of barges in its supply chain, and there is a barge service that ships goods and materials from the Sechelt Inlet through the Georgia Strait, the west coast of Vancouver Island and up to the Queen Charlotte Islands. Due to the specific nature of this form of transportation, it is likely to remain an ondemand charter-type operation in the long term. At the Stakeholder Workshop #1, the use of barge docking sites for hovercraft landings in the event of an emergency requiring mass evacuation was proposed by the emergency service representatives. Recommendation 1. Identify and communicate barge locations to facilitate mass evacuations in the event of a major natural disaster Travel Demand Management Definition: Travel Demand Management (TDM) is defined as any action or set of actions aimed at influencing people s travel behaviour in such a way that alternative mobility options are presented and/or traffic congestion is reduced. TDM strategies can be sitespecific or area-wide in scope. It includes strategies and policies aimed at reducing travel demand (specifically that of single-occupancy vehicles), or to redistribute this demand in space or in time. An article by the Centre for Clean Air Policy entitled Short Term Strategies to Increase Travel Efficiency and Reduce GHG Emissions (August 2009) contained a comprehensive list of typical TDM measures. This list is shown in Table 9.5. The table indicates the relevance to the SCRD region of each of these TDM measures, the degree of control that the SCRD, other municipalities and authorities have over each measure, and finally how each of these measures have been incorporated in the Integrated Transportation Plan. August 2011 Page 111

124 Travel Demand Management (TDM) Table 9.5 Travel Demand Management Measures Relevance Degree of Have Incorporated into ITS? to SCRD Control Comprehensive, Statewide Travel Demand Management Programs Telecommuting/Teleworking (working from home) Yes Little Compressed Work Week (working 40 hours in 4 days or 80 hours in 9 days) Yes Varies Recognize the importance of TDM Yes Little Carpooling (commuting with others) Yes High Parking Cash-out/Parking Pricing (removing the subsidies for parking) Public Information Campaigns (publicizing alternate behaviours) Pay as You Drive (PAYD) Insurance (setting car insurance rates based on amount of travel) No - No Promote through Business Chambers. Prevalence of Home Based Businesses Promote through Business Chambers. Prevalence of Home Based Businesses Promotion of carpooling and informing of carpooling options available Yes High Communications Plan Yes Little No Congestion Pricing (charging fees for travel in specific areas) VMT-based Fees (charging fees based on the amount of travel) No - No Yes Little No Immediate Infrastructure Projects Can Reduce Travel Demand Complete Streets, Safe Routes to Schools, and Other Bike/Pedestrian Improvement Programs Building Bicycle Networks, Mixed Use Trails and Encouraging Active Transportation Yes Yes High, with MoT High, with MoT Intersection upgrades, Bypass options Traffic Calming, Access Management Active Transportation Plans Active Transportation Plans Park and Ride High Occupancy Toll (HOT) and HOV (High Occupancy Vehicle) Lanes Improving Transit and Making Transit More Accessible Bus Rapid Transit (BRT) and Dedicated Bus Lanes Reforming Parking Requirements at the Local Level Intelligent Transportation Systems Traffic Efficiency and Flow Smoothing (reducing stop and go traffic) No - No Yes Medium, with BC Transit No - No Some High No Yes High, with MoT Transit service integration Alternative route options Park and Ride Carpooling Gibsons Bypass Roundabout Network Sechelt Bypass Intersection Improvements Gibsons Way TWLTL August 2011 Page 112

125 10.0 Community Energy and Emissions Plan and GHG Reductions Early in 2010, the SCRD released its Sunshine Coast Community Energy and Emissions Plan (CEEP) in partnership with the Town of Gibsons, District of Sechelt and Sechelt Indian Band. The CEEP aims to reduce energy use and greenhouse gas (GHG) emissions throughout the community. The plan includes a baseline of current energy use and GHG emissions on the coast, a business-as-usual forecast of future energy use, and emission forecasts to It also proposed reduction targets for community emissions. The report recognizes that the majority of emissions on the Sunshine Coast are generated through transportation activities, and therefore includes a focus on land use and transportation. Eight specific goals and actions were identified, of which Goals 1 and 2 are consistent with this ITP: Goal 1 - Support energy efficient land use practice: Define first and second tier growth concentration areas Increase housing and employment density in growth areas Encourage a transit oriented development demonstration project Goal 2 - Reduce dependence on single occupant vehicles: Enhance walking and cycling amenities Encourage and accommodate alternative transportation opportunities Foster a culture of efficient driving Increase transit ridership Given the existing land use development on the Sunshine Coast and the prominence of home-based businesses, some of the ideals expressed in Goal 1 could be more difficult to achieve versus in a typical urban scenario. While the Sunshine Coast is a unique environment given its limited access from Greater Vancouver, it still remains relevant to pursue the stated ideals. Using the SCRD-wide CO2 emissions calculated in the CEEP, assumptions were made as to the percentage reduction in CO2 emissions for each of the initiatives defined in the Integrated Transportation Plan outlined in Section 9. The results of these assumptions and their related CO2 reductions are shown in Table The table does not include some of the safety related initiatives such as horizontal curve improvements and intersection upgrades, as these are difficult to define in terms of emission reduction. For most of the proposed improvements the reduced deceleration and acceleration is likely to be offset by possibly higher travel speeds, resulting in a net neutral benefit. The real benefits of these initiatives are in terms of crash reduction and associated cost savings. August 2011 Page 113

126 Vehicle Type: Small Passenger Car Large Passenger Car Light Trucks, Vans, and SUVs Commercial Vehicles Tractor Trailer Trucks SCRD-wide CO2 Emissions (t) 17,882 9,719 64,330 23,936 2,215 Motorhomes 2,155 Motorcycles And Mopeds 724 Bus 1,847 Table 10.1 Gibsons Way Access Management Sechelt Bypass Assumed CO2 Reductions Assumed % Reduction in CO2 Emissions by Vehicle Type per ITP Initiative Reduced travel distance and delay 1% Reduced delay 2% Active Transportation Measures Gibsons Bypass Increased Bus Schedule Frequency Corridor Park & Ride Ride Share 1% 5% 2.0% 0.5% Reduced 1% delay 5% 2.0% 0.5% 1% 4% 2.0% 0.5% 0% 0% 0% 0% 0% 0% 0% 0% 2% 0% 0% 0% 0% 1% 1% 0% 0% Total Reduction for all Initiatives Combined (t CO2) 0% -5% 0% 0% Total CO2 Emissions: 122,808 1,228 2, ,456 3,868 1, ,233 Total Reduced SCRD-wide CO2 Emissions per Initiative (t) 11% As seen in the table, the greatest benefit in CO2 reduction can be achieved by increasing the bus schedule frequency and reliability for all BC Transit routes. The second highest reductions are achieved by the installation of the Sechelt and Gibsons Bypasses. The reasons for this in Sechelt is the reduced delay for all vehicles through the congested areas, and for Gibsons, the ferry traffic that is no longer required to stop at the traffic signals on Gibsons Way. The use of roundabouts also reduces delay and emissions. In total, combining all the initiatives, a net reduction in CO2 emissions of 13,233 tonnes can be achieved, or an 11% reduction below the transportation sector baseline determined in the CEEP. August 2011 Page 114

127 11.0 Communication Plan Ongoing communication about transportation choices can have a profound influence on people s behaviour simply by raising awareness. It is generally accepted that a person needs to hear or be exposed to something seven times before acting. Mediums of communication include: Local newspapers Local radio stations Community and organization newsletters Inserts in Municipal rates bills Workshops and expos Open houses Schools and school newsletters Signs and banners On board ferries and buses Websites Messages to communicate should encompass: Raise awareness of recent developments and initiatives pertaining to improved transportation services and facilities. On board ferry communications regarding bus services and ticket sales. Increasing the number of bicycle Share-the-Road signs on all roads throughout the Sunshine Coast, and especially along the length of Highway 101. This not only informs drivers of the possible presence of bicycles, but also brings cycling to the fore of their own minds to consider as a mode of transport. On-going local media and website communications reminding the community of mode choices available to them, accompanied by relevant testimonials from those mode users. Promotion of the Ride Share services available. Calling on all residents to sweep their driveway entrances to remove gravel and debris, making the roadway shoulders safer for cyclists and pedestrians. Recommendation 1. Identify communications and liaison coordination representatives within all local authority offices ( communication champions ), and include local media as a partner, and promote the initiatives outlined above. 2. All stakeholders should continually seek opportunities to promote alternative transportation choices. 3. Early and ongoing collaborative consultation in the detailed planning for the implementation of major projects is expected. This should include consultation with all affected communities, local governments and agencies. August 2011 Page 115