TOWNSHIP OF ESQUIMALT STAFF REPORT
MEETING DATE: October 28, 2024 Report No. EPW-24-026
TO: Council
FROM: Joel Clary, Director of Engineering & Public Works
SUBJECT: Esquimalt Road Active Transportation and Underground Improvements - Phase 1 Update
RECOMMENDATION:
Recommendation
That Council
a. Receive for information the What We Heard Report related to the Esquimalt Road Active Transportation and Underground Improvements - Phase 1 project, attached to Staff Report EPW-24-026;
b. Direct staff to continue with detailed design followed by construction tendering;
c. Direct staff to submit a grant application for a BC Active Transportation Infrastructure Grant for up to $500,000;
d. Confirm the project is a municipal priority and is intended to be complete within the required grant timeline;
e. Confirm the project is at the stage where construction can begin immediately once provincial funding has been announced and local weather conditions allows (“shovel ready”); and
f. Confirm the Township’s share of funding up to $2,950,000 is committed in the 2024 - 2028 Financial Plan;
.Body
EXECUTIVE SUMMARY:
The purpose of this report is to provide an update on Phase 1 of the Esquimalt Road Active Transportation and Underground Improvements project, which is from Dominion Road to Joffre Street. This report provides Council with a What We Heard report on recently completed engagement for Phase 1. Staff are seeking direction from Council to proceed with detailed design followed by construction tendering and to submit a BC Active Transportation Infrastructure Grant application for Phase 1.
BACKGROUND:
The Esquimalt Road Active Transportation and Underground Improvements project is a project identified in the Township’s Active Transportation Network Plan (ATNP) to add quick-build protected bike lanes on Esquimalt Road from Canteen Road to Dominion Road with the addition of sewer and drain main repairs. At the July 15, 2024 Committee of the Whole (COTW) meeting and adopted at the following Council meeting, Council directed staff to:
1) Award a contract to ISL Engineering and Land Services Ltd. for $604,541 for consultant services on the Esquimalt Road Active Transportation and Underground Improvements project;
2) Direct staff to proceed with Phase 1 design refinement engagement;
3) Direct staff to seek public input on two concepts on Esquimalt Road between Admirals Road and Park Place before advancing to refinement engagement in Phase 2;
4) That the four additional options be added at the cost of $11,500.
Further details on the above direction can be found in Staff Report EPW-24-021 from the July 15, 2024 COTW.
Following the direction provided by Council, staff worked with ISL Engineering and Land Services Ltd. (Consultant) to develop engagement materials for Phase 1 only. Phase 2 engagement is expected later in 2024.
Engagement for Phase 1 was completed through an online survey between September 4 and 25. The survey received 395 responses. A What We Heard Report for this engagement can be found in Attachment 1. The report provides details on what we did, what we heard, and who we heard from during the engagement process. For materials used during the engagement, including concept designs, please visit EngagingEsquimalt.ca.
With the engagement completed on Phase 1 and the designs far enough advanced, the Township has an opportunity to submit an application for this project for the BC Active Transportation Infrastructure Grants Program which provides cost-sharing opportunities for network planning grants and infrastructure grants. Funding from these grant programs support the development of active transportation infrastructure for all ages and abilities. The maximum funding by the province is up to $500,000 per project.
Projects submitted under this grant must meet the requirements of the Program Guidelines. One of the key criteria that must be satisfied for the project to be eligible for provincial funding is for the project to be at the stage where construction can begin immediately once provincial funding has been announced and local weather conditions allow (“shovel ready”).
The Program Guide identifies the following as criteria the applications will be evaluated based on:
1. Improves community connectivity through:
• Continuity between existing or planned transportation corridors
• Connections to destinations
• Linkages/multi-modal integration
• Partnerships between jurisdictions
• Data gathering through bicycle or pedestrian automatic counters
2. Improves safety through:
• Project aligns with the B.C. Active Transportation Design Guide and other best practices. Project responds to any safety concerns raised in the community and is supported by documentation and data.
Grant applications are due October 31, 2024. Further details can be found at: www.gov.bc.ca/gov/content/transportation/funding-engagement-permits/funding-grants/active-transportation-infrastructure-grants.
ANALYSIS:
After reviewing the What We Heard Report, staff recommend continuing with detailed design followed by construction tendering. According to the What We Heard Report, most participants felt that the proposed changes would make them feel safer after the addition of protected bike lanes (69%) and multi-use crosswalks with flashing lights (63%). This is reflected in how people feel their active trips will change following the proposed infrastructure, with cycling increasing by 47% and walking by 22%.
Survey respondents were given the opportunity to provide feedback beyond the pre-populated answers in the questions. The following are some of the key themes that were identified by the public, along with corresponding feedback from staff:
Traffic Congestion
Additional feedback identified concerns regarding traffic congestion due to the addition of bike lanes. The changes in Phase 1 do not change the capacity of the roadway, as Esquimalt Road will remain primarily one lane in each direction with a centre turn lane, as it is now. Changes to the traffic signals at the Esquimalt Road and Lampson intersection are expected to maintain or improve vehicle movements by reducing the number of phases, resulting in reduced intersection delays during peak times. This will be done by removing the split phasing for eastbound and westbound, and introducing a protected left turn phase. Staff will also review overall signal timing and operation to identify improvements, where possible.
Staff do expect vehicles to travel at a slower speed due to narrower lanes, which will improve the overall safety for all users of the corridor. With only minor traffic impacts expected due to the addition of the protected bike lanes, staff recommend proceeding with the current design.
Parking and Accessibility
Additional feedback through the engagement identified concerns with the reduction of parking spaces. In Phase 1, currently there are 39 parking spaces, of which 34 will be removed to accommodate protected bike lanes. The removal of the parking spaces is necessary to achieve the required minimum widths for vehicles and bike lanes, as well as a suitable buffer space for an All Ages and Abilities (AAA) facility. The 5 spots that remain will be accommodated as part of the development frontage at 900 Esquimalt Road, which is feasible due to additional right-of-way being provided as part of the development. Based on business feedback, staff plan on maintaining the parking along 900 Esquimalt Road frontage until the development construction commences.
The public feedback identified concerns around the impacts to businesses due to the loss of parking. A majority of the businesses along the corridor have parking on-site.
Staff expect the loss of parking to primarily impact residential properties between Lampson Street and Head Street. Impacted residents will be required to use on-site parking or parking on side streets. Staff recommend keeping the proposed scope and removing the parking spaces.
Prefer Existing Infrastructure
Additional feedback through the engagement identified some support to keep the existing infrastructure as the proposed changes are excessive or too costly. Feedback included the desire to keep painted bike lanes. Painted bike lanes do not meet the criteria identified in the BC Active Transportation Guidelines for All Ages and Abilities cycling facilities due to the volume of vehicles and speeds on Esquimalt Road. Staff recommend proceeding with the proposed changes which will provide cycling infrastructure for All Ages and Abilities, as identified in the Township’s Active Transportation Network Plan.
Emergency and Commercial Vehicles
Additional feedback through the engagement identified concerns about the ability of emergency and commercial vehicles to navigate tighter spaces created by bike lanes. Staff expect to address this concern based on lessons learned from the Tillicum and Lampson active transportation improvements. Following implementation of that project, staff received feedback regarding vehicle turning movements that resulted in the removal of additional barriers. Barriers were also removed to allow for vehicles to pull over when there are long stretches of barriers without breaks. Engineering staff applied these lessons to the designs for Esquimalt Road and continue to work with the Esquimalt Fire Rescue Services department to make any necessary improvements as the detailed design progresses. Staff recommend proceeding with the proposed design.
Alternative Routes for Bike Lanes
Additional feedback through the engagement identified concerns with using Esquimalt Road for protected bike lanes and the preference for using alternate routes. The use of Esquimalt Road for protected bike lanes aligns with the ATNP and frontage improvements planned for developments along this corridor. The proposed changes at Esquimalt Road and Dunsmuir Road intersection will facilitate cyclists that prefer to use an alternate route (example Dunsmuir Road and Lyall Street), while still providing protected bike lanes on Esquimalt Road. Staff recommend proceeding with the proposed design.
Based on the support for the proposed design in the engagement, staff recommend continuing with detailed design.
Regarding the grant, Phase 1 is an ideal project as it meets the eligibility criteria and the preferred project criteria that the evaluation will be based on, including:
- Connecting to existing cycling facilities on Lampson Street and proposed facilities in Phase 2;
- Connecting to destinations (businesses, CFB Esquimalt, Esquimalt Recreation Centre, Macaulay Elementary School);
- Connecting to another jurisdiction (City of Victoria); and
- Alignment with BC Active Transportation Design Guidelines for All Ages ad Abilities protected bike facilities.
In order to apply for the grant, the project needs to be at the stage where construction can begin immediately once provincial funding has been announced and local weather conditions allow (“shovel ready”). With the recent engagement and the current state of the design, staff are confident this criteria will be met.
One consideration before submitting an application is that construction must wait until the results of the application are announced. In previous years, the announcement hasn’t come until February and March. This could delay the start of the project by up to two to three months. With the construction completion requirement of March 31, 2027 to qualify for the funding, staff do not have concerns with this delay. Staff expect the majority of construction to occur in spring/summer 2025, if a grant application is submitted.
Staff recommend applying for the grant and potentially delaying the start of construction as staff feel Phase 1 is a very competitive application. Should Council direct staff to apply for the grant, the staff recommendation provides the necessary resolution that’s required for application eligibility. Please note that Phase 2 is not an eligible project as it is not “shovel ready”.
Environmental Impact
Active transportation plays a significant role in mitigating climate change as the transportation sector accounts for 33% of the community greenhouse gas (GHG) emissions. Completing bike lanes and pedestrian improvements on Esquimalt Road addresses high priority projects identified in the ATNP.
OPTIONS:
1. That Council:
a. Receive for information the What We Heard Report related to the Esquimalt Road Active Transportation and Underground Improvements - Phase 1 project, attached to Staff Report EPW-24-026;
b. Direct staff to continue with detailed design followed by construction tendering;
c. Direct staff to submit a grant application for a BC Active Transportation Infrastructure Grant for up to $500,000;
d. Confirm the project is a municipal priority and is intended to be complete within the required grant timeline;
e. Confirm the project is at the stage where construction can begin immediately once provincial funding has been announced and local weather conditions allows (“shovel ready”); and
f. Confirm the Township’s share of funding up to $2,950,000 is committed in the 2024 - 2028 Financial Plan;
2. That Council provide alternative direction to staff.
3. That Council request further information from staff.
COUNCIL PRIORITY:
Engaged & Healthy Community - Implement Active Transportation Network Plan
FINANCIAL IMPACT:
The 2024-2028 Financial Plan identifies a $2,950,000 budget for Phase 1 which is based on the following breakdown:
o Design = $150,000
o Active Transportation Improvements = $1,800,000
o Utility Repairs = $500,000
o Road Repairs = $500,000
The current construction estimate is $3,324,349, which includes 40% contingency. This is a Class D estimate that requires construction tendering to determine actual costs. As the detailed design progresses, staff will work with the consultant to update estimates and refine the scope accordingly. Staff will consider utilizing funds from other existing budgets, if applicable (examples: inflow & infiltration budget for sewer replacements). If adjustments to scope that change the fundamental elements of the project are required to meet the current budget, staff will seek direction from Council on these matters. At this time, staff recommend proceeding with the project.
COMMUNICATIONS/ENGAGEMENT:
The What We Heard Report provides a summary of the communications and engagement completed to date. Prior to construction, communications will be provided to impacted residents and businesses along the corridor.
Phase 2 engagement is expected in November and December 2025, with a What We Heard Report as a result of this engagement expected in early 2025.
TIMELINES & NEXT STEPS:
The next step in this project is to complete detailed design, apply for the grant, and tender the project. Staff will report back to Council with the results of the tendering process for Council’s consideration to award a construction contract. The timeline of tendering is subject to the grant announcement expected in February/March 2025.
REPORT REVIEWED BY:
1. Ian Irvine, Director of Finance, Reviewed
2. Deb Hopkins, Director of Corporate Services, Reviewed
3. Dan Horan, Chief Administrative Officer, Concurrence
LIST OF ATTACHMENTS:
1. Attachment 1 - What We Heard Report