LeBreton Flats. National Capital Commission. Pedestrian and Cyclist Plan. Prepared for: By:

Transcription

1 LeBreton Flats Pedestrian and Cyclist Plan Prepared for: National Capital Commission By: July 2002

2 TABLE OF CONTENTS 1.0 INTRODUCTION Background Study Objectives POLICY REVIEW Plan for Canada's Capital Former Regional Official Plan Former City of Ottawa Official Plan EXISTING CONDITIONS Formal Off-Road Routes Informal Off-Road Routes Facilities in Road Rights-of-Ways A PROPOSED LEBRETON FLATS PEDESTRIAN AND CYCLING PLAN The Proposed Development Plan On-Street Parking Recreational Pathway Opportunities Sidewalk Opportunities On-Road Cycling Opportunities Local Streets Collector and Arterial Streets CONCLUSION...13 Figures Figure 1: Plan for Canada s Capital, 1999 (Capital Core Area Concept 2050)... 3 Figure 2: Existing Off-Road Pedestrian and Cycling Routes... 6 Figure 3: LeBreton Flats Pedestrian and Cycling Plan... 7 Page i

3 1.0 INTRODUCTION 1.1 Background The National Capital Commission (NCC) is in the process of finalizing the development plans for LeBreton Flats, including the design and submission of a Plan of Subdivision for a Phase 1 of the development. In order to move forward with these plans, a determination needs to be made of the appropriate public street cross-sections. This will in-turn determine the street rightof-ways (ROWs) that need to be protected. This is of interest to the City of Ottawa as the streets will eventually conveyed to the municipality who will own and maintain the streets. The road corridor and ROW width is also of great interest to the NCC who want to keep the ROW width to a minimum to maximize development potential of the overall project and to reinforce the desired urban street image. The NCC plans to minimize the building height-to-roadto-road corridor width ratio, to achieve a human scale development wherever possible. The width of public street ROWs is a function of the requirements of the roadway and the road edge (including medians, if any). The largest factor is the roadway component, specifically the design of facilities for vehicles and cyclists. Separate transportation studies prepared for the NCC have addressed the number of vehicle lanes required and Source: Regional Road Corridor Design Guidelines, Region of Ottawa-Carleton, 2000 the anticipated traffic mix and general road speed and function. However, only limited analysis had been carried out regarding the on-road cycling facility requirements. The provision of onstreet parking and provision of on-road cycling facilities need to be studied together, because on-street parking influences opportunities for on-road cycling facilities. Also, solutions for on-street cycling facilities need to be developed in conjunction with the offroad cycling routes for LeBreton Flats and the greater area, particularly the recreational pathway system. This is because the emergence of new east-west or north-south routes through LeBreton Flats may influence the location and design of on-road cycling facilities. In turn, since the recreational pathway system accommodates pedestrians, as will the public streets (on sidewalks), it is prudent to concurrently study the pedestrian network requirements so that all modes of transportation can be examined in a holistic manner. Page 1

4 1.2 Study Objectives On this basis, this study addresses cycling and pedestrian requirements in LeBreton Flats by completing the following tasks: Review the City s and NCC s current pedestrian/bicycle/recreational pathway policies and network in the area; Meet with the appropriate NCC staff to ascertain their base pedestrian/bicycle network requirements for LeBreton Flats as well as on-street parking objectives; Discuss, with the appropriate City staff, their pedestrian/bicycle objectives for this area; and, Develop a preliminary pedestrian/bicycle plan for LeBreton Flats that accomplishes the following: integrates with the NCC s Recreation Pathway System; integrates with the City s bicycle network and pathway system; provides the required on-site linkages and connectivity; and identifies specific on-road requirements for bicycles (bicycle lanes or widened curb lanes) when appropriate. 2.0 POLICY REVIEW 2.1 Plan for Canada's Capital Currently the western portion of Ottawa River Pathway runs through LeBreton Flats. This 20km long paved pathway runs parallel to the Ottawa River from roughly Majors Hill Park to Moodie Drive, where it meets up with the Watts Creek Pathway through the Greenbelt. The majority of this portion of the Ottawa River Pathway has also been designated as the Trans-Canada Trail. The Plan for Canada's Capital, 1999 (PCC) requires that the NCC: Continue to cooperate with local and regional governments to plan, implement and manage an integrated network of recreational pathways that complements a separate commuter network managed by other levels of government. (PCC, Section 6.4) This policy acknowledges that the planned function of the Ottawa River Pathway is as a primarily recreational walking and cycling route function, whereas the commuter cycling routes are the responsibility of the City of Ottawa (primarily on-road facilities), and that the two systems need to be integrated. The PCC provides a Capital Core Area (Concept 2050) plan that includes the LeBreton Flats Area. One of the corresponding policies is to, encourage better public access to the Ottawa River (PCC, Section 4.3). This plan (see Figure 1) illustrates a Capital Pathway (the Ottawa River Pathway) being consolidated and relocated to parallel the Ottawa River shoreline throughout LeBreton Flats, as opposed to running through the area as it now does (see Figure 3 in Section 3.0). In addition, the NCC s Core Area Concept of Canada s Capital (April 2000) provides a demonstration drawing that reinforces the concept of relocating the Ottawa River Pathway to parallel the Ottawa River Shoreline, with the existing pathway through LeBreton Flats remaining as a Civic Pathway. Page 2

5 Figure 1: Plan for Canada s Capital, 1999 (Capital Core Area Concept 2050) Capital Pathway Page 3

6 2.2 Former Regional Official Plan The Regional Official Plan, 1997 (ROP), which is still in effect, establishes the former Region of Ottawa-Carleton s interest in maintaining both a Recreational Pathway Network and a related Cycling Transportation Network. Recreational Pathways are designated on Schedule I of the ROP for the, safe enjoyment of pedestrians, cyclists, and other non-motorised users (Section 6.8). The approval of Plans of Subdivision such as proposed for LeBreton Flats are to be conditional to, ensure continuity of the Recreational Pathway Network within a green and open corridor. (Section 6.8.3). The ROP also refers to the provisions of the Integrated Network of Recreational Pathways for the National Capital Region, 1994, completed in conjunction with the NCC and area municipalities. The NCC s Ottawa River Pathway which runs east-west through LeBreton Flats is designated as a Recreational Pathway in the ROP and as such the LeBreton Flats project is subject to the applicable Official Plan provisions. There are no other designated Recreational Pathways running through LeBreton Flats. It is important to note, however, that a proposed Recreational Pathway is designated along the adjacent north-south rail line now used by the City of Ottawa s O-Train, leading across the Prince of Wales Bridge over the Ottawa River. This route presumably would join the Rideau Canal Western Pathway at Dow s Lake to the NCC s Voyageur Pathway along the north side of the River. This route would be just west of LeBreton Flats. There are no known current plans to construct this pathway and the use of the rail line for the O-Train may limit or preclude its implementation. The Regional Cycling Transportation Network is designated on Schedule F of the ROP. This network is planned to accommodate on-road commuter cycling within the road network. Wellington Street and Booth Street in the LeBreton Flats area are designated as on-road cycling facilities. For such streets, it is the policy of the City of Ottawa to accommodate cyclists either as dedicated cycling lanes or as curb-side shared use lanes. The ROP also has various policies regarding the promotion of walking, cycling, and transit use over the use of private automobiles, and the creation of safe, pedestrian and cyclist friendly road designs. These policies were reinforced through the publication of Regional Road Corridor Design Guidelines, Other specific ROP policies include: sidewalks along arterial roads must have a minimum effective width of 2.0m where feasible; sidewalks are required on both sides of roads serving transit routes; and separate multi-use pathways are encouraged adjacent to transit corridors. 2.3 Former City of Ottawa Official Plan The Ottawa Official Plan does not designate cycling routes or recreation pathway routes. The Plan does, however, provide policies for linkages as part of a city-wide Greenway system. The plan designates lands along the Ottawa River at LeBreton Flats as Waterway Corridor. The proposed use of such areas is, for leisure, preferably pathway systems. The Plan also contains many policies that promote walking, cycling and transit use over the use of private automobiles, similar to those found in the ROP. Page 4

7 3.0 EXISTING CONDITIONS 3.1 Formal Off-Road Routes The only formal off-road route exists in the vicinity of LeBreton Flats is the western portion of the Ottawa River Pathway as discussed previously. This is a paved pathway and is also designated as part of the Trans-Canada Trail. The location of this pathway is illustrated on Figure Informal Off-Road Routes As illustrated on Figure 2, several footworn pathways exist throughout LeBreton Flats. There is a notable diagonal desire line pattern (southwest to northeast) across LeBreton Flats which suggests that there is a demand to the Booth Street bridge (across the Ottawa River to the City of Gatineau), and to the Ottawa River Pathway (connecting to downtown Ottawa), to and from communities to the southwest. The worn footpaths suggest that this walking demand is not serviced well by the Ottawa River Pathway or sidewalks along Booth Street and other area streets. An informal pathway also exists along the banks of the Ottawa River. 3.3 Facilities in Road Rights-of-Ways Some of the existing streets through LeBreton Flats have sidewalks, including Booth Street, Wellington Street, and the Transitway. The other historical streets have sidewalks of various conditions that are not being maintained. Although not specifically designated in the PCC, the Ottawa River Parkway is also an essential element of the Capital s on-road cycling network, considering its role as a commuter cycling link to downtown Ottawa and Gatineau. 4.0 A PROPOSED LEBRETON FLATS PEDESTRIAN AND CYCLING PLAN 4.1 The Proposed Development Plan The LeBreton Flats development plan includes a system of new public streets and the realignment of the Ottawa River Parkway. The realignment through the development is called LeBreton Boulevard. A number of development blocks are created that will host a range of land uses, including the Canadian War Museum, the Commons and other open spaces, as well as numerous residential, mixed-use and commercial blocks. The overall project will be developed at relatively high densities, with the residential portions within short walking distance to the LeBreton Transitway Station. Given this land use form and the proximity to and connectivity with downtown Ottawa, the area is certain to create a relatively high demand for pedestrian and cycling facilities, both on-road and off-road. The proposed LeBreton Flats development plan is illustrated on Figure 3, overlaid with a recommended pedestrian and cycling plan. 4.2 On-Street Parking As described in Section 1.0, the presence or not of on-street parking influences the options for on-road cycling facilities. LeBreton Flats is proposed to be a relatively dense, mixed-use Page 6

8 Figure 2: Existing Off-Road Pedestrian and Cycling Routes Ottawa River Pathway Other Informal Pathways Base Air Photo Source: NCC Page 6

9 Ottawa Figure 3: LeBreton Flats Pedestrian and Cycling Plan Portage Bridge Lett Transitway Booth Street Lloyd Ottawa River Ottawa River Parkway Existing Ottawa River Pathway Canadian War Museum Site Oregon Street The Commons Fleet LeBreton Blvd Sherwood Broad Aqueduct O Keefe Wellington Street Preston Street Legend Proposed On-Road Cycling Facility Existing Ottawa River Pathway Proposed New Ottawa River Pathway Proposed New Ottawa River Pathway Realigned Pathway (New Function) Existing & Proposed Community Linkages Base Map Source: NCC Potentially Use Portion of Existing Bridge Structure For Pathway Crossing Realigned Pathway (New Function) Potential Signalized Pathway Crossing Page 7

10 community, with the majority of the parking demand satisfied by on-site parking, primarily underground. However, providing only on-site parking is not considered adequate for the viability of the proposed commercial and medium/high density residential uses which often rely on-street parking to satisfy the short-term requirements related to: picking up and dropping off of residents and visitors by private vehicles or taxis; courier and truck delivery of parcels and merchandise; patronage of street-oriented retail businesses; and parking of emergency service vehicles. Based on these land use requirements and the traffic function of the roadways in LeBreton Flats, combined with the desire to minimize the public street right-of-way widths, the following on-street parking strategy is recommended: Local Streets: Dedicated parking on one side of the street, either in the form of a narrow indented parking aisle, or controlled through signage and/or parking meters. Preston and Booth Streets: Parking on both sides of the four-lane streets in the curb lanes, but only in off-peak periods. LeBreton Boulevard: For a six-lane cross-section, parking on both sides of the street, but only in off-peak periods. For a four-lane cross-section, dedicated parking on both sides of the street in the form of a narrow indented parking aisle. 4.3 Recreational Pathway Opportunities In accordance with the NCC s long range plans and the City of Ottawa s Official Plan policies as summarized in Section 2.0, it is recommended that two primary east-west recreational pathways be constructed through LeBreton Flats, as illustrated on Figure 3. The first proposed pathway would run along the Ottawa River shoreline through the north side of LeBreton Flats, as an extension of the existing Ottawa River Pathway from where it exists west of the inlet pond. It is recommended that this pathway be the main through-route for the Ottawa River Pathway in accordance with the Core Area Concept of Canada s Capital. It would also be the Trans-Canada Trail. This realignment of the Ottawa River Pathway along the shoreline is recommended for three reasons. Firstly, this alignment provides for an extension of the riverside theme and experience of that pathway system, as opposed to being aligned through a highly urbanized, narrow corridor which is the alternative. Secondly, this alignment will provide the best connection to the proposed Canadian War Museum and capital attractions planned for the islands. Thirdly, this northerly realignment creates the best opportunity for a fully grade-separated or at least signcontrolled pathway, particularly if a signal light can be installed on Booth Street to accommodate the service road requirements of the Canadian War Museum. It is recommended that this potential be studied, in addition to the potential for a grade-separated or signal-controlled crossing of the Portage Bridge approach road on the north side of Wellington Street. The second pathway would extend from the realigned Ottawa River Pathway west of the inlet pond, through the middle of the development to the east end of LeBreton Flats (see Figure 3). This pathway would include portions of the existing Ottawa River Pathway, with realignments along the aqueduct from approximately Lett Street through to the Preston Street extension. This Page 8

11 relocation is required because the existing pathway bisects the proposed development blocks north of the aqueduct. The NCC has expressed a desire to have the pathway run down the north side of the aqueduct, as a minimum, to create the opportunity for the pathway to be part of the integrated experience of outdoor sitting areas, cafes, etc. As shown on Figure 3, a second leg of this recreational pathway is proposed to parallel the south side of the aqueduct, giving cyclists the choice of route. This southern route may also provide an opportunity for the pathway to cross under Booth Street as part of the gradeseparated transitway structure. It is recommended that this possibility be explored during the detailed design of that structure. It is also recommended that the grade-separated or protected crossings of the Recreational Pathway at Preston Street also be examined. The function of the current paved pathway through LeBreton Flats, once realigned in the vicinity of the aqueduct, would likely thereby change from a National Capital purpose to a more neighborhood-oriented civic purpose. On this basis, it is recommended that the NCC evaluate the relationship of this pathway to their interests and, together with the City of Ottawa, determine who is the preferred agency to be responsible for the pathway over the long term. 4.4 Sidewalk Opportunities Given the proposed land uses, the relatively high development densities, and the urban context, it is recommended that sidewalks be constructed along both sides of every new public street proposed in LeBreton Flats. A minimum sidewalk width of 2.0m is recommended, in keeping with the Regional Road Corridor Design Guidelines and other best practices for sidewalk construction. A high quality pedestrian environment should be pursued in the road edge, considering the location of the sidewalk, street tree planting, street lighting, and other street amenities. 4.5 On-Road Cycling Opportunities The recommended facilities for on-road cycling vary depending on the street context. In LeBreton Flats, there are a combination of local streets, collector streets, and arterial roads. The recommendations for on-road cycling facilities as follows. These are based on preliminary input by the City of Ottawa Local Streets On local streets with lower traffic volumes and slower vehicle speeds, cycles can more easily mix with vehicle traffic. Given the relatively high development densities of local streets in LeBreton Flats (including Fleet, Lloyd, Lett, Sherwood, Broad Ottawa and Oregon Streets), they will carry higher traffic volumes than, say, suburban residential streets, but nonetheless will have a local function. All of these local streets are relatively short, and excessive traffic speeds are not anticipated. Further speed reductions can be achieved by creating narrow road corridors through the use of minimum vehicle lane widths, street tree planting in the road edge, light standards close to curbs, and reduced building setbacks. These are all tools that effectively reduce the perceived width of road corridors which can have a traffic calming effect. This should result in streets that are favorable to cyclists and their ability to mix with vehicles in the traffic flow. On this basis, onroad cycling facilities are not recommended for the local streets in LeBreton Flats. This corresponds with the preliminary direction from the City of Ottawa staff. Page 9

12 The vehicle lane widths could be 3.0m, plus a 0.25m curb offset, assuming that adjacent onstreet parking is proposed in indented parking aisles. This is generally in keeping with the Municipal Engineers Association Municipal Works Design Manual, 1984, for streets with design speeds of 50 km/h or less and AADT traffic of less than 3, Collector and Arterial Streets On other streets, particularly arterial roads and collector streets, cyclists can benefit from special roadway design in the form of on-road cycling facilities. There are three primary approaches, including shared curb-side vehicle/cycling lanes ranging in width from 4.0m to 4.5m, shared curb-side full-time parking and cycling lanes, ranging in width from 4.0m to 4.5m, and dedicated cycling lanes ranging in width from 1.5m to 2.0m. Shared-use lanes are applicable where traffic speeds and volume are low-to-moderate and/or there is a desire to minimize the width of the roadway. This is because shared use lanes require less asphalt than dedicated cycling lanes. The use of dedicated cycling lanes also result in a wider roadway surface and hence longer cross-walks. This competes with other pedestrian-oriented road design objectives. The requirements for road-side parallel parking is also a determinant of the on-road cycling facilities selected. Specifically, if off-peak parking is proposed in the curb lane which doubles as a peak period through-lane, dedicated cycling lanes are not recommended. The following recommendations are made for Preston Street, Booth Street, and LeBreton Boulevard within LeBreton Flats. Source: Regional Road Corridor Design Guidelines, Region of Ottawa- Carleton, 2000 Preston Street Preston Street is planned by the NCC as a four-lane roadway within a 26m ROW. There is no off-road north-south recreational pathways through LeBreton Flats. Therefore, it is likely that one of the preferred (by cyclists) north-south cycling routes through LeBreton Flats would be Preston Street. This is primarily because Preston Street provides a continuous connection between the Rideau Canal Western Pathway (at Dows Lake) and the Ottawa River Pathway and because the topography, traffic conditions, and land use conditions along Preston Street may create a more favourable cycling environment. The Preston Street route also provides a suitable connection to the Chaudiere Bridge (which provides a inter-provincial cycling connection) via a short stretch of LeBreton Boulevard that will also have on-road cycling facilities (see below). In accordance with the recommendations for on-street parking made in Section 5.2, the NCC s objective for Preston Street is that the outer lanes serve as parking lanes in off-peak periods to accommodate the needs of the mixed land uses proposed along the road. On this basis, dedicated cycling lanes are not recommended for Preston Street. Wider shared curb lanes, 4.25m wide, are recommended. This dimensions includes the curb offset. The Page 10

13 Adapted from Regional Road Corridor Design Guidelines, Region of Ottawa-Carleton, 2000 recommended width of the middle two lanes is 3.25m, bringing the total width of asphalt to 15.0m and leaving 5.5m in each road edge in which to locate a 2.0m sidewalk, landscaping, and street lighting (see sketch). Booth Street The former Regional Official Plan (ROP) identifies Booth Street as an On-Road Cycling Facility and the City of Ottawa (Daphne Hope) has confirmed that on-road cycling facilities are desired. Booth Street is also an arterial road and part of the urban truck route system. Between the transitway overpass and Fleet Street, the ROW for Booth Street has been established at 30m. Between Fleet Street and LeBreton Boulevard, the ROW increases to 32.0m to provide extra space, likely for the northbound left-turn lane onto LeBreton Boulevard. In these Adapted from Regional Road Corridor Design Guidelines, Region of Ottawa-Carleton, 2000 areas, the cross-section of the roadway portion of the ROW would be similar to that proposed for Preston Street, but with a slightly wider (4.4m) shared curb lane, considering that Booth Page 11

14 Street is a truck route. Assuming 3.25m wide vehicle lanes, there would be a 5.35m road edge on each side that could accommodate a range of boulevard treatments (see sketch). North of LeBreton Boulevard, the ROW for Booth Street is more than 40m. Four (4) vehicle lanes are proposed, with a contingency for future transit facilities. In this area, the roadway is likely to be divided (by a median) to permit a southbound left-turn lane onto LeBreton Boulevard and to control turning movements to/from side street intersections. It should also provide onroad cycling facilities as part of the main north-south cycling route to Gatineau across the Chaudiere Bridge and to respond to the ROP designation. It is undetermined whether or not onstreet parking will be provided in this section. For this portion of Booth Street, 4.4m wide shared curb lanes are also recommended to provide continuity with the section south of LeBreton Boulevard. LeBreton Boulevard LeBreton Boulevard will serve as the eastern terminus of the Ottawa River Parkway, is a direct route to downtown Ottawa and to the Chaudiere Bridge (to Gatineau), and will therefore need to accommodate cyclists, including commuter cyclists. LeBreton Boulevard is being protected to potentially accommodate up to six (6) traffic lanes. Regarding on-road cycling facilities, the following assumptions are made: The NCC proposes to construct the road initially as a four-lane roadway with the potential to develop the other two lanes in the future if/when required; As part of the four-lane arrangement, the NCC may want to construct dedicated indented parking aisles long each road edge; As part of the potential six-lane arrangement, the NCC may want to allow off-peak period parking in the outer curb lanes; and, The road will never be part of the urban truck route system. On this basis, 4.25m wide shared curb lanes are recommended as the on-road cycling facility for LeBreton Boulevard, for both the four-lane and six-lane stages. The benefits of using a wide shared-curb lane for cyclists along LeBreton Boulevard (rather than dedicated cycling lanes) are that the total roadway width can be minimized and be more in keeping with the highly urban street environment being pursued by the NCC for this corridor. The facility would also be consistent with the proposed on-road cycling facilities for Preston Street and Booth Street south of LeBreton Boulevard. For the ultimate six-lane cross section, the total width of asphalt in each direction according to this recommendation would be 11.0m (see sketch) for a total of 22.0m. If a 5.0m median is included, the distance between the outer curbs would therefore by 27.0m. If a 7.0m is provided along each road edge, this would bring the total Adapted from Regional Road Corridor Design Guidelines, Region of Ottawa-Carleton, 2000 ROW width to 41.0m. Alternative median and road edge treatments may increase or decrease the ROW width accordingly. Page 12

15 For the interim four-lane cross-section, the total width of asphalt in each direction would be 7.75m (4.25m + 3.5m), assuming a median would divide opposing traffic lanes. The curb-side indented parking aisle would be in addition to this dimension. It is important to note that these dimensions are based on recommended 3.25m vehicle lanes for LeBreton Boulevard as opposed to 3.5m vehicle lanes. When adjacent to a curb, and extra 0.25m offset is recommended. In our opinion, these slightly more narrow lane widths correspond to the very urban context proposed for LeBreton Flats. One of the benefits of the lane width reduction is that pedestrian crossing distances are reduced by 1.5m across six vehicle lanes. 5.0 CONCLUSION The foregoing recommendations for an integrated system of sidewalks, recreational pathways, and on-road cycling facilities are intended to implement the relevant policies of the NCC and the City of Ottawa official plans. They will provide a basis for the subsequent design of street crosssections, street designs, and ROW requirements throughout LeBreton Flats. This design exercise should consider the entire street corridor, from building face to building face, completed as a multi-disciplinary exercise involving planners, architects, landscape architects, traffic planners, and roadway engineers. H:\ISO\SO1059\SOC\DOCS\LeBretonFlatscycleplanfinalpdf.wpd Page 13