TOWNSHIP OF ESQUIMALT STAFF REPORT
MEETING DATE: April 7, 2025 Report No. EPW-25-005
TO: Council
FROM: Joel Clary, Director of Engineering & Public Works
SUBJECT: Esquimalt Road Active Transportation and Underground Improvements - Phase 2 Update
RECOMMENDATION:
Recommendation
That Council:
a. Receive the Esquimalt Road Active Transportation and Underground Improvements - Phase 2 What We Heard Report for information;
b. Designate Esquimalt Road as the priority corridor for east-west cycling facilities;
c. Direct staff to advance designs for a project on Esquimalt Road that includes:
i. Quick-build protected bike lanes between Joffre Street and Fraser Street; and
ii. Interim bike facilities between Admirals Road and Canteen Road, including required signal modifications at Nelson Street;
d. Direct staff to pause design work until 2026 on protected bike lanes on Esquimalt Road between Fraser Street and Admirals Road in consideration of an Active Transportation Network Plan priorities discussion with Council, Esquimalt Road Urban Design Guidelines, and City of Victoria watermain upgrade;
e. Direct staff to complete further analysis of asset renewals along the Esquimalt Road Phase 2 corridor in consideration of Council direction on active transportation elements; and
f. Direct staff to complete Traffic Orders in 2025 for proposed parking changes off Esquimalt Road;
as described in Staff Report EPW-25-005.
Body
EXECUTIVE SUMMARY:
The purpose of this report is to provide Council with a What We Heard Report on the recently completed routing engagement for Phase 2 of the Esquimalt Road Active Transportation and Underground Improvements Project, which is from Joffre Street to Canteen Road. The report provides options for Council to consider, based on the feedback in the What We Heard Report and technical analysis by staff and the consultant. This report focuses on the active transportation elements of the project. Staff are seeking direction from Council on which of the active transportation elements to advance to the next phase of the project.
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. In addition, the project includes sewer and drain main repairs. The project is split into the following two phases:
• Phase 1 - Dominion Road to Joffre Street
• Phase 2 - Joffre Street to Canteen Road
Previous discussions with Council on the ATNP and the Esquimalt Road Project occurred at the following times:
• August 23, 2021 - ATNP Council Check-In (see staff report EPW-21-020)
• February 7, 2022 - ATNP (full version; see staff report EPW-22-003)
• July 15, 2024 - Esquimalt Road Project Update and Contract Award (see staff report EPW-24-021)
• October 28, 2024 - Esquimalt Road Phase 1 Update (see staff report EPW-24-026)
The discussion on Phase 1 in October 2024 included a What We Heard Report on Phase 1 engagement. At that time, Council directed staff to “continue with detailed design followed by construction tendering” and to “submit a grant for the BC Active Transportation Infrastructure Grant for up to $500,000.” Staff submitted the grant application and recently received confirmation that the application was successful. Staff are now working on finalizing the remaining details of the design and then proceeding to construction tendering. Staff anticipate the construction tendering process for Phase 1 to occur in late spring 2025.
After the engagement on Phase 1 finished, staff and the consultant shifted focus to Phase 2 engagement. During the July 2024 discussion noted above, Council directed 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; and
• that the four additional options be added at the cost of $11,500.
The direction outlined above references the concepts in the Request for Proposals (RFP) for Phase 2 and an optional item in the RFP to add east-west bike facility options off Esquimalt Road, as part of the engagement. Further details can be found in the corresponding staff report under EPW-024-021.
Staff then worked with the consultant to determine the appropriate routes that would be presented to the public for engagement. The only feasible alternative that was identified off Esquimalt Road was utilizing Lyall Street, which is also identified as a future route in the Township’s Ultimate Cycling Network on page 92 of the ATNP. Several options connecting to Lyall Street were considered; however, staff and the consultant decided to limit the number of routes based on feasibility and to develop clear, easily digestible engagement materials. The routing analysis resulted in the following routing options:
• Option 1: Protected bike lanes on Esquimalt Road from Joffre Street to Canteen Road
o Requires removal of all parking (99 spaces) on Esquimalt Road
• Option 1A: Same as option one, except with the removal of two median islands and centre turn lane between Park Place and Admirals Road
o Retains 9 parking spots on the north side of Esquimalt Road
• Option 2: Neighbourhood bikeway on Joffre Street to Lyall Street and back up Constance Avenue where protected bike lanes would continue on Esquimalt Road to Canteen Road
o Utilizes neighbourhood bikeways by reducing vehicle volumes and speeds to be less than 1000 vehicles per day and less than 30km/h through vehicle diverters and traffic calming
o Maintains parking on Esquimalt Road in Town Centre business area
• Option 3: Protected bike lanes on Esquimalt Road, except between Fraser Street and Constance Avenue, where bi-directional protected bike lanes would be installed on Fraser Street and neighbourhood bikeways would be utilized on Carlisle Avenue, Comerford Street, Lyall Street and Constance Avenue
o Requires Fraser Street to become one-way for vehicles
o Maintains parking on Esquimalt Road in Town Centre business area
For reference, the below image from the engagement materials reflects the routes described above.
These options were used to form the basis of the routing engagement. Unlike other recent engagements that took place further along in the design phase, the engagement materials for Phase 2 focused on routing options. As such, full conceptual designs were not completed. Instead, engagement materials utilized examples from other corridors and artistic renderings.
When considering the design of the routes to complete engagement on, staff utilized the ATNP and best practices as a guide. One of the “5 Big Moves” in the ATNP is to develop a quick-build network that provides protection from vehicles. Staff and the consultant also utilized the BC Active Transportation Design Guidelines, which align with best practice, to identify potential quick-build routes. Through this process there were routes that were excluded from consideration in the engagement materials for the for the following reasons:
- Lampson Street between Esquimalt Road and Lyall Street
o The volume of vehicles would require protected bike lanes and due to the width of the road, the addition of protected bike lanes would result in one-way vehicle movements or significant changes to the road width through curb relocations
- Admirals Road between Esquimalt Road and Lyall Street
o Although painted bike lanes exist on portions of this segment, providing AAA movements at the intersection are problematic with the number of conflicting vehicle movements
- Archie Browning parking lot and Country Grocer laneway
o Conflicting turning movements and blind spots in parking lots, along with limited right-of-way would result in substandard facility
On November 21, 2024, an online survey and engagement materials were posted to EngagingEsquimalt.ca. The survey was left open until January 27, 2025, to ensure sufficient time to complete the survey. The survey received 657 responses during that time.
Two Open Houses occurred on November 28, 2024 and January 16, 2025. Over 250 people are estimated to have attended the Open Houses. Staff also held 15 one-on-one meetings with businesses to gather specific feedback from the business community perspective.
All of the feedback received during the engagement is summarized by the consultant in the What We Heard Report in Attachment 1. For transparency purposes, all additional feedback collected through the survey and Open Houses, are in Attachment 2. For reference, the engagement materials are attached to this report as Attachment 3.
ANALYSIS:
The What We Heard Report is a thorough compilation of all the feedback received during the engagement period. The report was compiled by the consultant from a neutral perspective to accurately portray the community’s feedback on this topic. The purpose of this Analysis section is to add another lens from staff’s perspective on what this feedback means, how it aligns with Council’s priorities, and implementation options to address the feedback. This added lens is to help Council provide direction on the next steps of this project.
Staff’s analysis focuses on the active transportation elements of the project, which were the source of the engagement. These elements are only a portion of the project, which also includes sewer, drain, signal, and road upgrades. During the engagement period staff consistently heard support for completing asset renewals in coordination with the active transportation project. Following direction from Council on the active transportation elements, staff recommend a detailed analysis on the best way to coordinate the asset renewals. As part of this analysis, staff would assess urgency of the renewal, construction impacts, and coordination opportunities.
Another consideration that wasn’t noted in the engagement materials is an upcoming watermain renewal project on Esquimalt Road between Lampson Street and Admirals Road, as recently identified by City of Victoria. Discussions on this matter are still progressing. Initial discussions indicate a coordination opportunity through a phased approach, with the split proposed at Fraser Street. The watermain upgrade relies on grant funding to complete full replacement, upgrading and seismically restraining the watermain to increase resilience. These works are significant and coordination with this work is best, in order to minimize impacts and costs. The project is subject to City of Victoria budget approval process and available funding. The construction timing for this work is addressed in the Options section of this report, based on initial discussions with City of Victoria staff; however, further coordination is needed.
To refine the analysis of the What We Heard Report, the analysis focuses on the following key themes that arose during the engagement period:
1. Protected bike lanes on Esquimalt Road (Option 1) are the preferred routing option for an east-west bike facility.
2. There remains strong desire for bike facilities on Lyall Street, in alignment with the Ultimate Cycling Network in the ATNP.
3. There are significant concerns regarding parking removals on Esquimalt Road and the impacts this has on businesses.
Although there’s significantly more feedback provided in the What We Heard Report, staff will focus on these three key themes for the analysis; however, Council may request further analysis on other aspects of the projects or the What We Heard Report as part of a future report.
Esquimalt Road Protected Bike Lanes Preferred Option
During the engagement on the ATNP, the public was asked to rank the highest priority projects for improvements to the cycling network. Tied as the top priority was implementation of an east-west cycling corridor on Esquimalt Road / Lyall Street and implementation of protected bike lanes on Tillicum Road. During this engagement, the public was also asked to select a preference for an east-west cycling corridor between Esquimalt Road, Lyall Street or a combination of both. Esquimalt Road was selected as the preferred option. Further information on these questions were discussed in EPW-24-021 at the July 15, 2024 COTW meeting and in the ATNP.
As part of the Esquimalt Road Phase 2 project, the public was again asked to rank their preference between Esquimalt Road or Lyall Street using the new routing options described above, with the following results (lowest number being the highest ranking):
It’s important to note that users were required to select an option and were not given a choice to select “do nothing”. This was similar with the Open House:
As noted at the bottom of the above image, 15 participants selected an option to “do nothing” which was added by a member of the public during the Open House. Staff suspect this aligns with some users selecting options other than Option 1 in the survey, out of concern around the impacts of Option 1, instead of as a preference for using their selected option (example: Lyall Street).
Staff recognize the limited sample size in the survey and Open House; however, this feedback has been consistent throughout the ATNP engagement and Esquimalt Road engagement, in that Esquimalt Road continues to be the preferred route for an east-west connection. Based on this information, Esquimalt Road is the route most likely to increase travel by active modes. More evidence of this is reflected in question 6 of the survey that show 41% of survey participants “would be more likely to bicycle / roll” after the Option 1 improvements are completed. This mode shift aligns with the goals of the ATNP and the actions in the Climate Action Plan.
There are impacts to implementing the bike facilities on Esquimalt Road that can’t be ignored, particularly related to parking removals. It’s worth noting that question 4 of the survey asked users to rank needs on Esquimalt Road, with the following results (lowest number being highest ranking):
Even though parking availability was listed lower on the overall needs of the corridor, the concern about parking loss was clear during discussions at the Open Houses and in the one-on-one meetings with businesses. This is highlighted further down in the report and reflected in the Options section of this report.
Based on the engagement results, staff recommend that Esquimalt Road be designated as the priority east-west corridor for an all ages and abilities (AAA) bike facility. For Phase 2, this results in a continuation of Phase 1 of the project on Esquimalt Road. The Options section of this report considers implementation options, including the timing and segmentation of Phase 2.
Desire for Lyall Street Bike Facilities
As described in the above section, multiple engagements have explored an east-west route on Lyall Street or Esquimalt Road. Additional engagements going further back exist as well (examples: Esquimalt Road Urban Design Guidelines in 2017 and Lyall Street active transportation improvements in 2018 before the ATNP was initiated). Based on the recent feedback and the continued discussion of exploring bike facilities on Lyall Street, staff are confident that although Lyall Street may not be a higher priority than Esquimalt Road, it is still a priority and as such, should be considered for future improvements. This aligns with the Ultimate Cycling Network in the ATNP.
Even though only 17% of responses said they “would be more likely to bicycle / roll” after the Option 2 improvements are completed, staff heard from many people during the engagement period that prefer to cycle on Lyall Street for safety reasons and for access to destinations (CFB Esquimalt, Macaulay Elementary, Recreation Centre, and Archie Browning Sports Centre).
Staff recommend keeping Lyall Street on the Ultimate Cycling Network and include Lyall Street as a priority project for consideration in future refreshes of the ATNP.
Parking Removal Concerns
Option 1 identified full removal of all 99 parking spaces on Esquimalt Road in order to install protected bike lanes. Other options provided opportunity to retain parking, including:
- Option 1a: retain 9 parking spaces on Esquimalt Road
- Option 2 and 3: retain all parking on Esquimalt Road between Fraser Street and Constance Avenue
However, these options were not identified as the preferred option. Option 1a considers retaining 9 parking spaces between Admirals Road and Park Place at the expense of two medians and turn lane; however, the results reflect concern with removing the median islands with 58% of responses being very uncomfortable (41%) or somewhat uncomfortable (17%) with removal of medians. Option 2 is discussed above and although appears to be a priority, it is not the highest priority. Option 3 received the lowest ranking in all formats.
From staff’s analysis, what remains is a preference for bike lanes on Esquimalt Road, retention of median islands and parking; however, it is not feasible to achieve all of these objectives. Included in the engagement, staff identified opportunities to increase parking off Esquimalt Road on nearby roads. Feedback on the proposed changes was mixed, with 39% of responses in the survey stating these changes “does not meet the needs” of the community. Staff’s interpretation of this feedback is that these changes do not offset the perceived impacts of the parking removals on Esquimalt Road. This was evident during discussions with businesses, who felt these changes would be helpful but were still concerned about customer parking and loading requirements. As the proposed changes align with the Integrated Parking Management Strategy, to “update time limitations in Town Centre”, staff recommend proceeding with these changes in 2025, separate from the decision on active transportation improvements on Esquimalt Road. Staff would use the additional feedback gathered during the engagement period on the types of parking needed to complete these changes (examples: accessible, time limited, and loading zones).
In the discussions at the Open Houses and in the meetings with businesses, there are still significant concerns about the impacts of the loss of parking on Esquimalt Road in the Town Centre (Fraser Street to Constance Avenue). This is evident in the additional feedback provided in the survey (see Attachment 2). To address this, staff recommend delaying the implementation of bike facilities between Fraser Street and Admirals Road and implementing temporary measures west of Admirals that accommodate some parking. This aligns with feedback provided during the meetings with businesses that businesses need time to adjust. Also, this allows for additional coordination with City of Victoria’s proposed water main upgrade, while still providing an interim bike connection from existing bike facilities on Admirals Road westward to Canteen. Staff identified options for implementing these phases are proposed in the Options section of this report.
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 and advance the objectives in the Climate Action Plan.
OPTIONS:
This section explores options for Council to consider regarding active transportation elements of the project. As described earlier in this report, further analysis on asset renewals and coordination of this work, along with City of Victoria watermain work, is required following the direction on the active transportation elements. The Phase 2 options for consideration are segmented to reflect engagement feedback. Staff are seeking direction on each segment of the project.
Segment 1: Esquimalt Road between Joffre Street and Fraser Street
Adding protected bike lanes on this segment of Esquimalt Road aligns with the priority for an east-west connection on Esquimalt Road and aligns with Phase 1 of the overall Esquimalt Road project. Minimal parking removal is required to achieve protected bike lanes in this segment. This segment aligns with planned City of Victoria watermain work that is currently in the planning stages. Design of the watermain is planned for 2025, tentatively followed by construction in 2026.
Staff recommend proceeding with detailed design of asset renewals and protected bike lanes on Esquimalt Road between Joffre Street and Fraser Street.
Segment 2: Esquimalt Road between Fraser Street and Admirals Road
Adding protected bike lanes on this segment of Esquimalt Road aligns with the priority for an east-west connection on Esquimalt Road; however, this segment is where most of the parking concerns are. To allow for businesses to plan for the change, staff recommend proceeding with the design to align with a potential coordination opportunity with City of Victoria for construction in 2027. This also allows for a check-in with Council on the priorities in the ATNP, a potential refresh of the ATNP in 2026 and the planned Esquimalt Road Urban Design Guidelines in 2026, resource dependent, before construction would begin. To do this though, design work would begin in 2026, running concurrently and in coordination with these other projects.
An alternative option is to delay starting the design of this segment until 2027 or beyond. This risks missing a coordination opportunity with the City of Victoria watermain upgrade which needs to be complete by March 2028, to be eligible for the grant funding. The opportunity to improve the watermain benefits Esquimalt residents and requesting the delay of the watermain work beyond March 2028 would greatly reduce the likelihood of this project occurring in the foreseeable future.
Segment 3: Esquimalt Road between Admirals Road and Canteen Road
As a current 4-lane road with parking available during off-peak hours, this segment of road functions differently than the other segments. The vehicle volumes through this segment do not warrant a 4-lane cross section. Concern about the parking removals was received, but not as significant as within the Town Centre. Further, this section has planned development north of Esquimalt Road on Nelson Street. Due to the increase in density in this area, a signalized intersection is identified at Esquimalt Road and Nelson Street, with contributions anticipated from developments.
Staff recommend proceeding with the detailed design of the Esquimalt Road and Nelson Street intersection, in coordination with development. As part of this design, staff recommend interim treatments for the remainder of the segment to reduce costs, given that the priority of this segment may be lower if Segment 2 above does not proceed, and the corridor remains unconnected. The interim improvements can be accomplished through paint and bollard installations to create buffered bike lanes on Esquimalt Road and maintain most parking on the south side of this segment, except between Constance Avenue and Admirals Road, where only three parking spots will be maintained on the north side. A high-level concept reflecting this is shown in the following image:
These changes improve the cycling facilities on this segment, while reducing parking impacts and costs. Although not AAA facilities, these changes are a significant improvement for cyclists and create an opportunity to monitor increased ridership and the need for further improvements in the future.
The engagement materials considered new median islands and centre turn lanes in this segment; however, staff do not recommend making this scale of investment, until a fully connected route can be achieved, and the priority of these improvements are identified in the overall ATNP. If Council desires, or if future vehicle and bike volumes warrant additional improvements, physical bike lane separation could be added, and parking could be removed to accommodate centre medians and turn lanes.
Options:
1. That Council
a. Receive the Esquimalt Road Active Transportation and Underground Improvements - Phase 2 What We Heard Report for information;
b. Designate Esquimalt Road as the priority corridor for east-west cycling facilities;
c. Direct staff to advance designs for a project on Esquimalt Road that includes:
i. Quick-build protected bike lanes between Joffre Street and Fraser Street; and
ii. Interim bike facilities between Admirals Road and Canteen Road, including required signal modifications at Nelson Street;
d. Direct staff to pause design work until 2026 on protected bike lanes on Esquimalt Road between Fraser Street and Admirals Road in consideration of an Active Transportation Network Plan priorities discussion with Council, Esquimalt Road Urban Design Guidelines, and City of Victoria watermain upgrade;
e. Direct staff to complete further analysis of asset renewals along the Esquimalt Road Phase 2 corridor in consideration of Council direction on active transportation elements; and
f. Direct staff to complete Traffic Orders in 2025 for proposed parking changes off Esquimalt Road;
as described in Staff Report EPW-25-005.
2. That Council direct staff to proceed with detailed design on protected bike lanes on Esquimalt Road between Joffre Street and Canteen Road.
3. That Council provide alternative direction to staff.
4. That Council request further information from staff.
COUNCIL PRIORITY:
Engaged & Healthy Community - Implement Active Transportation Network Plan
Housing - Parking Strategy
Climate Resilience & Environmental Stewardship - Climate Action Plans
FINANCIAL IMPACT:
The 2025-2029 Financial Plan identifies a remaining budget of $3,729,597 for Phase 2 which is based on the following breakdown:
o Design = $229,597
o Active Transportation Improvements = $1,500,000
o Utility Repairs = $1,000,000
o Road Repairs = $1,000,000
The current construction estimate to construct protected bike lanes along Esquimalt Road between Joffre Street and Canteen Road, along with identified asset renewals, is $4,335,265, which includes a 40% contingency and all design costs. These are Class D estimates that require construction tendering to determine actual costs. This construction estimate would exceed the total budget by $605,668, but as the detailed design progresses, staff will work with the consultant to update estimates and refine scope to stay within the approved budget. Excluded from the estimates at this time are a majority of the signal costs at Esquimalt Road and Nelson Street, which are dependent on development contributions.
COMMUNICATIONS/ENGAGEMENT:
The What We Heard Report provides a summary of the communications and engagement completed to date.
TIMELINES & NEXT STEPS:
Following Council’s direction on the active transportation elements of the project and implementation timing of these elements, the next step is to determine the recommended asset renewals to be coordinated with this work. Further coordination with City of Victoria on watermain replacements is required.
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
2. Attachment 2 - Additional Engagement Feedback
3. Attachment 3 - Engagement Materials