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HomeMy WebLinkAboutDSD-20-073 - Activation of StreetsREPORT TO:Special Council DATE OF MEETING:June 22, 2020 SUBMITTED BY:Barry Cronkite, Director, Transportation Services, 519-741-2200ext. 7738 PREPARED BY:Darren Kropf, Active Transportation Planning Project Manager, 519-741-2200 ext. 7314 WARD (S) INVOLVED:All Wards DATE OF REPORT:June4, 2020 REPORT NO.:DSD-20-073 SUBJECT:Activation of Streets ___________________________________________________________________________ RECOMMENDATION: That staff be directed to assess opportunities to quickly and affordably expand active transportation infrastructure to facilitate essential tripsand exercise while physical distancing; That painted bike lanes be installed on Krug Street (River Road to East Avenue),Franklin Street (Weber Avenue to Ottawa Street) and Stirling Avenue (Courtland Avenue to King Street), and that the Uniform Traffic By-law be amended accordingly; That Delta Street be permanently converted from a road to a multi-use trail, including an interim road closure until full reconstruction in 2021; That Gaukel Streetbe closed from Charles Street to Joseph Street and converted into a passive seating area until November 2020; That notwithstanding Section 9(a), Schedule 12, of Chapter 599 of The City of Kitchener Municipal Code, for the time period of July 1 to August31, 2020, which may be extended area zoned R1, R2, R3, R4, R5, R6, R7, R8 or R9 by the City Zoning By-law, as amended, in the City of Kitchener, provided they comply with Chapter 599 as well as the various conditions set out in Report DSD-20-073; and further, That the Uniform Traffic By-law be amended to reflect recent and current bike lane installations through street reconstructions on Mill Street (Stirling Avenue to Ottawa Street), Franklin Street (Trafalgar Avenue to Weber Street)and Stirling Avenue (Greenbrook Drive to CourtlandAvenue). *** This information is available in accessible formats upon request. *** Please call 519-741-2345 or TTY 1-866-969-9994 for assistance. 8 - 1 EXECUTIVE SUMMARY: The ongoing efforts to improve active transportation has continuedthrough the pandemic, with some new initiatives, some recently startedprojects ready for City Council approval,and several existing projects under construction. Through a variety of seasonaland permanent upgrades, the city can add approximately 13.5 kilometersof new active transportation facilitiesand additional temporary outdoor seating/dining areasin 2020,as well asnew secure bike parking facilities. StreetFacility typeLength VariousSlow StreetsApproximately 5 km Krug StreetPainted bike lanes1.5 km Franklin StreetPainted bike lanes1.7 km Stirling AvenuePainted bike lanes0.7 km King Street, Belmont Avenue & Seasonal conversion to 1.2 km Gaukel Streetpatio and passive seating Mill Street(Stirling to Ottawa)Painted bike lanes0.8 km Mill Street(Ottawa to Courtland)Boulevard multi-use trail0.8 km Wilson AvenueBoulevard multi-use trail1.0 km Budd ParkMulti-use trail0.8 km The majority of capital funding is providedprogramfor street reconstructions and a provincial grant through the Ontario Municipal Commuter Cycling (OMCC) program. According to the grant agreement, the OMCC funding must be spent before the end of 2020 or be returned to the province. BACKGROUND: As the province and city begin to lift emergency measures, People-Friendly Transportation will take on greater importancethrough the remainder of the pandemicand post pandemic period.A shift away from public transit is expected for at least the short to medium term, puttinggreater pressure on both vehicle and activetransportation networks.An additional pressure on the street network exists as restaurants and bars are currently only permitted to provide non-takeaway dining through outdoorpatioseating to maintain physical distancing. People living in apartments and condos are having a muchdifferent experience during stay at home orders than those living inhousing with front and back yards. People living without private outdoor space are reliant onaccessingpublic spacessuch as streets, trails and parks for physical activity and mental well-being. Redeployed city staff have been monitoring active transportation corridors to gather data on the frequency of residents walking, rolling and cycling. It is clear from the data that more people are choosing active transportation at this time.Studies along the IronHorse trail indicate that active transportation has more than doubled when compared to 2018 (the IronHorse Trail was closed for upgrades in 2019)as illustrated in the table below: 8 - 2 Daily IronHorse Trail use pre and post COVID-19 Month20182020 February230279 March305616 April 402793 May7191,189 To help understand the impacts of COVID-19 on vehicle patterns, city-wide data collection for motor vehicle speed and volumes was conducted over a 4 week period in May 2020 at 22 strategic locations. Basedon this information, motor vehicle volumes were reduced by 52%over pre-pandemic data counts.Vehicle speeds varied from street to street, with no discernable pattern. Increases in speed by up to 8 km/h were found on some streets, while decreases down to 5 km/h were also measured. All proposed cycling facilitiesin this reportare identifiedin The Cycling Master Plan (2010), which outlines a plan to implement 114 kilometres of cycling infrastructure over 20 years. It is worth noting that all affected streets are identified in the draft Cycling and Trails Master Plan as well, which will be brought forward to Council later this year. REPORT: New initiatives Slow Streets Slow streets is a temporary change to city streets to create slower and safer neighbourhood streets that are more comfortable for walking, rolling, and biking. Streets designated as Slow Streets willnot be fully closed to vehicle traffic, but will beclosed to through trafficmeaning only emergency vehicles, maintenancevehicles, delivery vehicles and people who live on the street are intended to have access. All users of the street must still follow the rules of the road, but by reducing traffic volume, it is safer for cyclists and vehicles to share the street while pedestrians can safely use the sidewalk and pass on the roadway as necessaryto maintain physical distancing. Staffis working with neighbourhood associationsto identify streets, as well recommending streets based on proposed neighbourhood bikeways in the draft Cycling and Trails Master Plan. Neighbourhood bikewaysare quiet, local streets that can be enjoyed in a low-stress environment Focusing on neighbourhood bikeways is a reflection that staffanticipate seeing higher numbers of local cyclists using these streets, and therefore the reduction in through traffic will make the street feel more comfortable for pedestrians and people cycling. Preference has been given to the neighbourhoods indicated in the table below due totheir increased vulnerability relative to the rest of the City of Kitchener. This vulnerability was 8 - 3 determined usingpopulationdensity, vulnerabilityof COVID-19(age over 65)and proximity to major trails appropriately wide enough for physical distancing. Neighbourhood*Population**Vulnerability of Proposed Boundaries DensitypopulationStreet Central HighHighCameron Street King to East Fredrick&Stirling to Frederick Samuel Street Heritage ParkHighHighMontcalm Drive Lorraine to Ottawa Victoria HillsMedHighBrybeck Westmount to Karn Crescent VanierMedHighGreenfield Fifth to Traynor Avenue RockwayMedHighSydney StreetCourtland to Charles & Delta Street& Sydney to Floral *Population density: High: 5,000 < population per area square km, Medium: 2,500-4,999, low:< 2,500 **Vulnerability of population: High: More than 45% of population is 65+, Medium: 20%-30% population is 65+, low: Less than 5% In addition to theabovepriority neighbourhoods, Slow Streets were implemented on the following: Duke St W(Wellington Stto WaterlooSt) and ShanleySt(DukeStto MooreAve) Duke St E(PandoraAveto CedarSt)and Cameron Street (Weber St to King St) The above noted streets were identified by their respective neighbourhood associations. Staff then reviewed and determined that they were ideal candidates for the program given that they are currently identified as neighbourhood bikeways within the CTMP that typically do not carry transit. Krug Street bike lanes Krug Street is currently a very wide, two lane road with on-street parking.Krug Street is one of the bestoptions for cycliststo connect between the east side of the city andthe downtowndue to the absence of highway ramps and limited roadway volume,relative to Regional roads.That being said, there is still a considerable amount of volume(app. 5,000 vehicles per day) and high th rates of speed (58km/h 85percentile) that make Krug Street uncomfortable for cycling. The proposed bike lanes extend from River Roadto East Avenue, connecting to the existing bike lanes on East Avenue, and include a painted buffer where space permits. This will make Krug Street a safer, more comfortable connection. On-street parking alongboth sides of Krug Street between EastAvenueand DumfriesAvenue will be impacted(approximately 27spaces). From DumfriesAvenueto RiverRoad, parking on the east side will be impacted, (approximately 70spaces), while parking on the west side will be maintained (approximately 68spaces). Parking studies conducted in 2016 found an average occupancy of less than 10%, indicating the remaining spaces are adequate to satisfy parking demand. To improve access to parking for residents between East and Dumfries, an additional 8 - 4 7spaces are proposed to be added on Krug between Merner Avenue and EastAvenue,in place of a right turn lane. A public open house was held on May 18, 2017, with 23 comments and 20 surveys submitted. Support for the bike lanes were expressed, as well as concerns regarding traffic speed and the loss of parking and trees. Alternative parking arrangements were investigated, such as the addition of parking between Merner Avenue and East Avenue. The tree impacts were isolated to the section betweenWeber Street and East Avenue, andbike lanes are no longer recommended for installation in that sectiondue to the impacts to very large stature trees. Alternatively, staff are proposing acycling route using East Avenue, Chapel Street and Lancaster Avenue, which is being recommended in the Cycling and Trails Master plan and is being considered for installation cycling grid with connections from surrounding neighbourhoods, in 2021. Franklin Street bike lanes Reconstruction of Franklin Street North between Weber Street and Trafalgar Avenue began in 2019 and will be completed in 2020, including the addition of new bike lanes. An amendment to the Uniform Traffic Bylaw is needed to reflect these changes. To complete the bike lane connection to Ottawa Street and the Dom Cardillo Trail, and serve a school and community centre, bike lanes are proposed from Trafalgar Avenue to Ottawa Street. There is sufficient roadway width on Franklin to add bike lanes and a painted buffer. Twenty- eight parking spaces will be removed, with an average occupancy of 8% (study conducted in early 2020, before state of emergency). A public open house was heldon March 10, 2020 with 40 attendees. The majority of attendees supported the bike lanes. One resident from outside the project limits was concerned regarding the loss of parking. The Cycling and Trails Advisory Committee passed a motionon March 10, 2020: Stirling Avenue bike lanes Over the last several years, Stirling Avenue has been reconstructed several blocks at a time. Bike lanes have been added with each stage of construction. In 2020-2021, reconstruction will see bike lanes added to the southerly limits, creating a continuous corridor from Greenbrook Drive to Courtland Avenue.An amendment to the Uniform Traffic Bylawis neededto reflect these changes. Staff are proposing to extend the existing bike route on Stirling Avenue by installing bike lanes between Courtland Avenueand King Street. This portion of Stirling Avenue have excess road capacity to convert the street from four lanes to two (with left turn lanes) and add bike lanes, through repainting and signage. This section can be done in rapid implementation (1-2 months depending on contractor availability). 8 - 5 When complete, Stirling will be a continuous cycling corridor linking the east end of downtown to a new active transportation bridge over the expressway into Chandler Mowat and Alpine neighbourhoods, and improving connectivity to McLennan Park. Delta Streettemporary closure (2020) and conversion to multi-use trail (2021) Delta Street is scheduledfor a full reconstruction in 2021. Being parallel to Charles Street East and based on updated traffic data, Delta is considered a redundant roadway in terms of capacity and access; however it contains underground infrastructure that cannot be located (looped water mains and sanitary sewer connections. Future redevelopment will orient vehicle access to SydneyStreetand/or CharlesStreet.As a result, staff identified an opportunity to convert the road to a multi-use trail, providing a pedestrian and cycling connection from the Iron Horse Trail to Rockway Gardens and the Rockway, Kingsdale and Vanier neighbourhoods. This is consistent with the draft Cycling and Trails Master Plan and the Planning Around Rapid Transit Stations master plan for the Rockway neighbourhood. The design of the trail will generally match the Iron Horse Trail. With construction scheduled for 2021, an interim closure with road closure barricades can open up the street for active transportation and physical activity, and give the community a chance to experience the new configuration before permanent changes are made. The Cycling and Trails Advisory Committee passed a motion committee supports the redevelopment of Delta Street into a multi-use trail, as pres Following the cancellation of a planned open house, property owners next to Delta Street were informed of proposed plans to convert the street to a trail and were in support of the proposal. In addition, staff is proposing a boulevard multi-use trail on Sydney Street to fill the short, 200 m gap between the Iron Horse Trail, Nyberg sidewalks/contraflow bike lane and the proposed new trail on Delta Street.The trailis located on the golf course side of the street and will have no impact on privateproperty. It is planned be included as part of the Delta Street reconstruction tender in 2021. King Street and Belmont Avenue seasonal conversion to patios The food service industry has been impactedby the COVID-19 pandemic.In order to support the viability of restaurants, the city launched a streamlined patio program. To facilitate greater outdoor seating capacity, restaurants have requested additional street space for patio expansion in 2020. In efforts to promote local downtown business recovery, City staff have been working with King Street businesses to provide extended patio spaces, in collaboration with the Downtown BIA. Expanded patio spaces create greater community vibrancy as residents reclaim their downtown neighbourhood in the safest way possible and support downtown businesses to safely serve customers. Additionally, staff are exploring options to expand pedestrian space on King Street for increased physical distancing measures. The closure is dependent upon feedback from businesses and 8 - 6 resident response to visiting the downtown. If appropriate, the closure would take place in two stages. Stage 1 would see the closure along King Street from Young Street to Ontario Street, running approximately from July 2, 2020-Sept 30, 2020. Contingent upon favourable resident and business response staff would move towards a second closure. The stage 2 closure of King Street would be determined by input received andwould begin August 4, 2020-Sept 30, 2020. The closed portion of King Street would feature additional public seating and safe community programming while maintaining physical distancing measures. While we cannot replace the large summer events the City is known for, this type of initiative supports smaller gatherings and is reflective of the programming we can provide at this time, allowing groups to gather in small numbers in a safe manner. Similarly, city staff have agreed to temporarily closethe auxiliary lane of Belmont Avenue West between Argyle Street and Claremont Avenue to motor vehicles and convert to patio space until fall of 2020.Again, City staff have been working with businesses and the Belmont Village BIA to provide this space in an appropriate manner that meets the needs of businesses and still provides for appropriate physical distancing. Food Trucks in Residential Zones Staff have received requests from thefood truckindustryto permitoperation in residential zones as an economic tool.The desirability of this type of operation is evidenced by the fact that residents often inquire if food trucks can be hired for operation at a personal home or neighbourhood event. Traditionally, this would require a special event licence. Food truck operatorshave requested tooperate near residential parks, schools, and high-density neighbourhoods, as they speculate that is where they will have the most exposure and pass-by traffic. It is worth noting that there are approximately 37 food trucks that operate in Kitchener annually,21 of which have renewed for the 2020 season. There are many advantages to allowing food trucks to operate in residential zones.Specifically, it continues to promote community identity and a sense of belonging, especially in areas with high-density, for example townhouse complexes. Allowing food trucks in residential zones provides the possibility for various food options within a neighbourhood, limiting the need to visit commercial areas with higher exposure to covid-19 concerns. It also eliminates the need to obtain a special event permit whenhavingafood-truck attend aprivate residence. With the reduction of special events occurring across the city, thisinitiative willhelp support food trucks that arecurrentlylicensed and operatingin the City of Kitchener. It will increase their visibility and increase the locations that they are permitted to operate.It willalsoencourage food trucksyet renewedto obtain their 2020 licence. In order to ensure public health and safety, nuisance control, and consumer protection, staff have developed conditions that will dictate proper operation. The conditionsinclude: Food truck must have a valid City of Kitchener business licence; 8 - 7 Operate only between the hours of11:00am 8:00pm; or school); No horns, flashing lights, or amplified sound/music would be permitted; Parking must be in a legal parking spot and must abide by allparking regulations; Food truck must be parked in a manner that the serving window is parallel to the sidewalk; Parking in one location has a 2-hour maximum limit and then the food truck must move to a different street; Food trucks cannot operate within200 metres of a property with a licensed Food Shop; Food trucks cannot operate within 500 metres of each other; Food trucks cannot operate on Regional roads; Operator must ensure that no waste is left behind; Operator must ensure that any line-ups are onthe sidewalk or boulevard; and Operator must ensure that physical distancing measures are in place. Any violation of any of the conditions listed above, the Business Licensing By-law, or another Municipal by-law will result in revocation of permission by the Manager of Licensing to operate in residential zones. Food trucks are required to continue to comply with the all other regulations in the Business Licensing By-law. Gaukel Streetseasonal conversion to passive seating area a plan to create apedestrian-firstGaukel Street.A project team of staff and community members has been working for several months on this project, generating many creative ideas to enhance the current pedestrian experience.Many of these ideas centred on active events and aprogramming schedule that isnot currently feasible during the pandemic; however,the street can still be a valuable active transportation connection and passive seating area for takeout dining and community-based art. City staff is recommending closingGaukel Streetbetween Joseph Street and Charles Street to motor vehicle trafficfor passive dining and recreation useuntil November 2020. This provides the community an opportunity to experience the space in its current format, and imagine what the space might look like in the future, when a more comprehensive pedestrian first street and public space experience can be provided. Projectconstructionupdates(for information purposes) Mill Street bikelanes(Stirling to Ottawa)and multi-use trail(Ottawa to Courtland) Mill Street is being reconstructedand will include cycling facilities, which will connect tothe ION Mill Station from either direction and createa more connected cycling network. Mill Street facilities will also connectwith bike lanes on Stirling Avenue, the recently built multi-use trail on Courtland Avenue under the expressway and Ottawa Street bike lanes, thereby filling a major critical gapin the cycling network. 8 - 8 The intersection of Mill Street and Stirling Avenue rst two-stage left turn queue boxes. This designencouragesless confident cyclists to take a more cautious approach to turning left. Instead of mixing with vehicles in the left turn lane, cyclists can stay aligned with the bike lane and proceed through the intersection with a green light, and then wait at the other side until the light switches again to proceed in the opposite direction. This design is based on newly established best practices as outlined in the Ontario Traffic Manual. Public consultation meetings were held in advance of construction, informing residents of the impending construction and intention to add sidewalks, multi use trail and bike lanes along Mill Street. Wilson Avenue boulevard multi-use trail Currently a four lane road, Wilson Avenue has no cycling facilities and intermittent sidewalks. A multi-use trail in the boulevard on one side of the street is proposed. Given the industrial focus of the neighbourhood, pedestrian volumes are sufficiently low that a multi-use trail for both pedestrians and cyclists is appropriate. Staff investigated the feasibility of pedestrian and cycling facilities between Webster Road and Kingsway Drive, in order to provide a full connection to Fairway ION Station, Fairview Mall and the Kingsdale neighbourhood. However, further studies and analysis is needed as a result of space constraints and challenges due to the railway overpass and LRT corridor. This work could not be included within the timelines of the grant requirements, so has been deferred to a later date. Budd Park multi-use trailupgrade In 2019-2020, the Region of Waterloo constructed a 7km boulevard multi-use trail along Homer WatsonBoulevard, with an 800 m gap through city-owned Budd Park. Anexisting stone dust trail through Budd Park requires upgrading to asphalt to make it a four season facility. Upgrading the trail through Budd Park to asphalt and widening it to 3 m would make the entire Homer Watson corridor accessible year round for adjacent neighbourhoods, industrial employment lands and retail located along the corridor. Secure bike parking Construction has begun on new secure bike parking facilities at the Duke Ontario and Kitchener Market parking garage, bringing secure bicycle parking to all of the City of Kitchener garages. While additional bike rackcapacity and amenities are still to come, both secure bike parking locations are available foruse. ALIGNMENT WITH CITY OF KITCHENER STRATEGIC PLAN: Strategic Priority:People-friendly transportation.Transform how people move through the city by making the transportation network safe, comfortable and connected. 8 - 9 FINANCIAL IMPLICATIONS: SlowStreets While full cost implications are not yet known, it is anticipatedthat the total annual lifecycle of each roximately $5,000due to initial site preparation (pothole and trip hazard repairs), as well as set up, occasional monitoringand removal of signs and barricades. It is worth noting that approximately$1,500of the total cost per streetis unfunded. The maintenance (pothole and trip repair) is a requirement of legislated minimum maintenance standards and already incorporated in existing operating budgets. However slow streets are being prioritized in anticipation of increased active travel, and repairs arebeing tailored to accommodate shared use of the street.The unfunded portion of the 2020 slow streets program can be accommodated withinexisting budgets, however continuation of the program in 2021 ng budget. Food Trucks There will be no additional charge or licence to food trucks looking to operate in residential zones. All food trucks must have a 2020 City Kitchener Business Licence. The cost of a licence is $275 for a new licence and $185 for arenewal. Capital Expenditures The cycling projectscontained within this reportare primarily fundedby grant funding awarded to the city in 2018, through the Ontario Municipal Commuter Cycling program. The province contributed 80% of project costs, with the city contributing the remaining 20%, for a total of $1,081,363.75towards a variety ofcycling projectsapproved by the province.Approximately $585,000 remains in the OMCC funding allotment. Capital costsfor projects in this report add up to $585,000, based on these estimates: Stirling Avenue bike lanes -$5,000 Franklin Avenue bike lanes -$4,000 Krug Street bike lanes -$6,000 Wilson Avenue Boulevard Multi-use Trail -$300,000 Budd Park trail upgrade $250,000 Upgrades remaining to Duke Ontario and KitchenerMarket secure bike parking -$20,000 The grant agreement for OMCC provides a deadline of December 31, 2020 for all construction, with unspent funds being returned to the province. A request for an extension, due to the pandemic emergency, has not been granted. or through road reconstruction project accounts Annual Operating expenditures Due to limited snow storage space along Stirling Avenuebetween Courtland Avenue and King Street, the painted bike lanes are expected requiresnow loading removalto adhere to minimum 8 - 10 maintenance requirements.The totalincrease in annual on-roadoperating costs for winter maintenance of the proposed bike lanes in this report are estimated at $21,000 annually. Portions of the new on-road cycling facilities on Mill Street between Ottawa Street and Stirling Avenue are expected to requiresnowloadingremoval to adhere to minimum maintenance requirements. The total increase in annual on-road operating costs for winter maintenance of the proposed bike lanes on Mill Street is approximately$10,000 annually. The new multi-use trails on Wilson Avenue,Mill Streetand through Budd Parkwill require year- round off-road maintenance, estimated to cost $24,000annually. All Operating costs will be referred to the 2021 operating budget deliberations. COMMUNITY ENGAGEMENT: INFORM council / committee meeting. CONSULT Some engagement was completed before pandemic emergency measures were in place, though some engagements were cancelled.For clarity, the engagement conducted has been described earlier in the body of the report.Given that typical engagement has not happened due to pandemic physical distancing and limiting of group sizes, staff will engage the community after installation. While this process is not typical it will allow for staff to understand sentiment of affected property owners and report back to council at a later date. This approach only applies to Krug Street and Stirling Avenue between King Street and Courtland Avenue. PREVIOUS CONSIDERATION OF THIS MATTER: DSD-20-071 Business Recovery Patio Program for 2020 DSD-19-235 Complete Streets, October 10, 2019 DTS 10-144 Cycling Master Plan, July 21, 2010 CSD-17-100 Planning Around Rapid Transit Station Areas (PARTS) Rockway, November 15, 2017 ACKNOWLEDGED BY: Justin Readman, General Manager, Development Services 8 - 11