REPORT TO THE CAPITAL REGIONAL DISTRICT BOARD MEETING OF WEDNESDAY, SEPTEMBER 8, 2010

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1 REPORT TO THE CAPITAL REGIONAL DISTRICT BOARD MEETING OF WEDNESDAY, SEPTEMBER 8, 2010 SUBJECT City of Victoria Request for General Strategic Priorities Funding Application Support Johnson Street Bridge Replacement Project ISSUE To consider a request from the City of Victoria for Capital Regional District (CRD) endorsement of a funding application for the allocation of General Strategic Priority Gas Tax funding for the Johnson Street Bridge Replacement project. BACKGROUND At the July 28, 2010 CRD Planning, Transportation and Protective Services Committee meeting, staff from the City of Victoria made a presentation on the Johnson Street Bridge Reconstruction project which focused on funding for the multi-use path and rail components of the project. At the time of the presentation, the City had not made a decision on replacing or rehabilitating the bridge however subsequently the City has decided to proceed with the replacement option subject to funding 1 (see Appendices 1 and 2). The purpose of the presentation was to request CRD support of a funding application for the multi-use path and rail components of the Johnson Street Bridge project through the General Strategic Priorities Fund (GSPF) of the Federal Government of Canada and BC Union of British Columbia Municipalities (UBCM) Gas Tax Agreement. The City is anticipating confirmation of the federal government s earlier commitment of $21 million of Building Canada Infrastructure Replacement project funding for bridge construction. The General Strategic Priorities Fund (GSPF) has the potential to provide additional federal funding of up to $23.5 million, thus reaching the 50% limit of federal funding allowable for the full scope of the project as noted in the estimates below: Funding Estimates and Proposal Submitted by City of Victoria Rail Component of Project $12m Multi-Use Trail Component of Project $17m Roadway (3 lanes and 2 cycle lanes) plus sidewalk $60m Full Scope of Project $89m 50% (limit of Federal funds) $44.5m Previously committed Federal Infrastructure Grant $21m Application for GSPF Funding $23.5m (limit of Federal funding) 1 The GSPF is the application-based component of the Gas Tax fund; a provincial/ubcm committee makes the funding allocation decisions based on applications submitted. The next funding call is anticipated in late 2010 or early 2011.

2 CRD Board Meeting September 8, 2010 Re: General Strategic Priorities Fund Johnson Street Bridge Replacement Project Page 2 Following the presentation from the City, the committee passed the following motion: That staff be asked to prepare a report for the September Board meeting on the opportunities and challenges related to the funding request from the City of Victoria, and including the considerations brought forward in the letter from Graham Bruce, Island Corridor Foundation, dated July 26, 2010, regarding the Regional Rail Blue Bridge Cost-sharing. At the same meeting and as referenced in the above noted motion, the committee received correspondence from Graham Bruce, Executive Director, Island Corridor Foundation (ICF) advising of support from Mayor Stewart Young, Mayor Barb Desjardins, Mayor Graham Hill and Councillor John Luton for a CRD regional service with a fair regional funding formula that would preserve the rail component of the Johnston Street Blue Bridge (see Appendix 3). While the proposed rail component of the Johnston Street Blue Bridge is addressed in this report, a proposal to establish a CRD regional service with a fair regional funding formula to preserve the rail component needs to be considered following a decision on the scope of the GSPF funding application and is presented in conjunction with one of the Alternatives as a complementary but independent measure. ALTERNATIVES 1) That the request by the City of Victoria for CRD support of an application to the GSPF gas tax fund for partial funding of $23.5 million for the Rail Component and Multi-Use Path Component of the Johnson Street Bridge Replacement project be approved. 2) That the request by the City of Victoria for CRD support for an application to the GSPF gas tax fund for the Multi-Use Path Component of the Johnson Street Bridge Replacement project with an estimated cost of $17 million be approved. 3) That the request for support of the GSPF application by the City for $17 million for the Multi-use Path Component of the Johnson Street Bridge Replacement project be supported together with a proposed application for $15 million for the balance of the E&N Rail Trail project within the CRD. 4) That Alternative 3 be supported and that staff be directed to bring forward a proposed Service Establishment Bylaw together with funding formula options for $6.5 million to fund the rail component of the Johnson Street Bridge. 5) That the CRD decline supporting the application to the General Strategic Priority Gas Tax Fund gas tax funding for the Johnson Street Bridge Replacement project at this time. REGIONAL SUSTAINABILITY IMPLICATIONS The CRD Board adopted the TravelChoices Regional Transportation Strategy in 2005 as the long range transportation plan for the region together with mode share targets and other policy actions. These policies assisted the Board in adopting a TravelChoices Implementation and Investment Plan (TIIP) in One result of TIIP was the allocation of Regional Strategic Priority (RSPF) gas tax funds and a successful application for General Strategic Priority Gas Tax funds for implementing the E&N Rail Trail project (see Appendix 4 for further background). Alternative 1 suggests that the region could support the maximum amount of funding possible for this project ($23.5 million maximum 50% federal funding) on the basis that design and capacity of the bridge should be maximized including the provision for rail. However, it should be noted that the general theme of the funding criteria and inclusion of this type of infrastructure under the public transit category of GSPF funding suggests that if a rail facility is supported there would likely need to be some likelihood of a future commuter rail service to maximize the chance for funding according to the stated funding criteria. The rehabilitation of roads and bridges that enhance sustainable outcomes also qualifies under the public transit category however the optional rail

3 CRD Board Meeting September 8, 2010 Re: General Strategic Priorities Fund Johnson Street Bridge Replacement Project Page 3 component of the bridge would need to significantly contribute to a reduction of car dependency. There is currently no formal regional commuter rail operating commitment or regional service in place. Commuters from within the region are primarily proposed to be served by the proposed BC Transit rapid transit service which will also be seeking federal funding. However, commuter rail service would also serve commuters from outside the CRD. The correspondence from the ICF suggests that a regional service be considered to complement the funding application for the Rail Component of the Johnston Street Bridge. Alternative 2 is fully supported by the TravelChoices policy objectives and would complement the current CRD priority to complete the E&N Rail Trail. This component of the bridge project is clearly eligible under the funding criteria. The Johnson Street Bridge is an important component of transportation infrastructure within the region which currently carries approximately 30,000 daily trips including about 3,000 by pedestrians and 4,000 by cyclists. Alternative 3 suggests that while the City of Victoria is seeking support for a GSPF application for the bridge, support for a GSPF application for the multi-use trail component could also include a complementary application for the balance of the funding necessary to complete the entire multi-use trail project. Alternative 4 supports proceeding with Alternative 3 but would also allow consideration of establishing a regional service to fund the rail component of the bridge. Alternative 5 suggests that the Johnston Street Bridge replacement project should be viewed as a City project until such time as there is a formal agreement on regional priorities and regional corridor management funding. The City did not identify the bridge replacement requirements at the time the Board approved the first TravelChoices Implementation and Investment Plan (TIIP) and funding priorities and allocations of gas tax funds were decided accordingly. The Board has previously prioritized completion of the E&N rail trail as a priority and so far $13.3 million has been allocated to priority sections with approximately $15 million of future funding required to complete the project. All local governments within the CRD currently receive a direct allocation of gas tax funds that can be allocated to priority projects. It may be necessary to pool some or all of these funds in the future to be leveraged with regional and General Strategic Priority Gas Tax funds, in order to accumulate adequate funding capacity to replace and improve regionally significant transportation infrastructure. At the present time the region has identified the completion of the E&N Rail Trail as the current priority. SOCIAL AND ENVIRONMENTAL IMPLICATIONS The criteria for funding from the GSPF requires applications be directed at projects that enhance infrastructure supporting sustainable travel modes under the category of public transit including: Public transit system projects such as rapid transit and bus facilities, commuter rail, cycling and pedestrian infrastructure) Road system improvements that encourage a reduction in car dependency Rehabilitation of roads and bridges that enhance sustainable outcomes Paths and trails The Johnston Street Bridge project proposes to replace the existing structure with enhanced sustainable outcomes and greenhouse gas (GHG) reduction benefits. The City of Victoria proposal is supported by significant evidence of the critical role the bridge plays for cycling and pedestrians as well as serving as a primary transit route to Esquimalt, View Royal and other parts of the region. Projections and modeling suggests there will be significant increases in future demand for space to accommodate increased use of sustainable transportation modes on the bridge.

4 CRD Board Meeting September 8, 2010 Re: General Strategic Priorities Fund Johnson Street Bridge Replacement Project Page 4 Support for Alternative 1 proposes recognition of this project as the highest priority for investment in regional transportation infrastructure at this time as requested by the City. Given the amount of funding requested, regional support for this application may result in limited gas tax funding being available for other applications to the GSPF in this application period. Alternative No 2 recognizes the multi-use trail component of the bridge replacement project as complementary to the completion of the E&N Rail Trail project. This does not include the Rail component as this part of the project would not significantly respond to the mode shift targets for the region as stated in TravelChoices and is not recognized by the Provincial Transit Plan and BC Transit Master Plan for the Region. GSPF criteria regarding public transit may more strongly favour investments in bus transit initiatives with supporting pedestrian and cycling facilities. Alternative 3 recognizes the multi-use trail component of the bridge replacement project as supporting the completion of the E&N Rail Trail project and proposes a complementary application for funding to complete the balance of the E&N Rail Trail project as an integral part of the Board s priority for investment of gas tax funds. The E&N Rail Trail project has already been identified as an important addition to the higher level pedestrian and cycling infrastructure along with the Galloping Goose and Lochside regional trails. The Johnston Street Bridge component is critical to the success of the E&N rail trail. However, at the time of commencement of the E&N project and the initial applications for funding, the City of Victoria had not decided how to proceed with the components of the project within the City. The current priority for funding identified as part of the E&N Rail Trail is the section between Four Mile and the underpass at Colwood Interchange (Island Highway and Trans Canada Highway). Alternative 4 supports proceeding with Alternative 3 but would also allow consideration of establishing a regional service to fund the rail component of the bridge to achieve a longer term objective to provide enhanced rail service and inter-regional commuter service to downtown Victoria. The cost to add this component to the bridge or provide a bridge in the future would be significantly greater than proceeding with the rail component as part of the current project proposal. Alternative 5 recognizes that the rationale and criteria used to evaluate projects as part of the currently approved TIIP does not identify the Johnston Street Bridge as a priority for gas tax funding. The decision by BC Transit to select a preferred alignment for the initial component of an overall CRD rapid transit network is based on travel demand, confirmed CRD and BC Ministry of Transportation and Infrastructure (MoTI) data and analysis. This preferred alignment linking West Shore communities with downtown Victoria does not support the Johnson Street Bridge crossing as an element eligible for provincial Transit Plan funding. Therefore the rail component of the bridge might be found ineligible or be considered less of a priority for the region. Notwithstanding BC Transit s decision regarding a preferred alignment, there are other possible benefits that would result from the rail component of the bridge replacement including use of the enhanced linkage to support the Victoria Regional Transit Master Plan which currently identifies a frequent transit service across the bridge between Victoria and Esquimalt. However, other priorities for funding have been identified as being more effective in advancing the objectives of the TravelChoices Regional Transportation Plan as part of the TIIP evaluation process. The feasibility of commuter rail is part of the overall assessment of potential passenger and freight services on the E&N corridor recently completed by the BC MoTI in partnership with the ICF. The Foundation and Commuter Rail reports which are part of the Evaluation of the E&N Railway Corridor conclude that while urban commuter rail on the E&N corridor may be a viable and sustainable future public transportation option for the region, significant public investment would be needed to meet customer service requirements. This would include large scale track repairs and upgrades, new trains, additional tracks and signals, stations, and a maintenance and storage facility. For a system from Westhills to Victoria these costs would range from $69 to $165 million, including $22 to $32 million for the trains and $47 to $133 million for the facilities within the

5 CRD Board Meeting September 8, 2010 Re: General Strategic Priorities Fund Johnson Street Bridge Replacement Project Page 5 corridor 2. Ridership estimates suggest a high per passenger initial costs to implement with resulting average cost of $50 to $60 per passenger trip. The Commuter Rail Report concludes that: Due to the size of the travel market from West Shore communities into Victoria, the estimated ridership for this type of service may not justify a commuter rail service as defined by the initial operating parameters. The greatest impediments to higher ridership within the existing market include slower running speeds of the train and competition from existing transit services along the same general route 3. ECONOMIC IMPLICATIONS The Johnson Street Bridge issue has the potential to affect the CRD financially. All local governments in the region will be competing for the forthcoming GSPF funding. In this context, it is very important for the CRD to select a course of action that most appropriately aligns with established regional priorities that will also be seeking GSPF funding, namely: Completion of the E&N Rail Trail project. (Approximately $15 million to be funded). Further development of BC Transit s Master Plan after the completion of the rapid transit link between downtown and West Shore. Recommended projects from the completed CRD Pedestrian and Cycling Master Plan. Extension of work already completed on the Island Highway to Colwood and Esquimalt supporting enhanced public transit, cycling and pedestrian facilities. Upgrades on the Pat Bay Highway supporting rapid transit and the enhanced movement of people and goods. Recommendations resulting from the CRD Transportation Corridor Management Plan which will begin in early Recommendations resulting from the CRD Transportation Demand Management Strategy which will also begin in early SUMMARY The federal government s New Deal For Towns and Cities Gas Tax program has provided funding for regionally significant projects which support the Regional Growth Strategy vision of an accessible, affordable and sustainable transportation system, and advance the TravelChoices mission for a significant shift of regional travel away from single occupancy automobile to cycling, walking and public transit. The TravelChoices Implementation and Investment Plan (2007) or TIIP has provided the framework to evaluate regionally significant transportation proposals by municipalities and provincial agencies in terms of regional sustainability goals, and to rank these in terms of priority for funding from the Gas Tax program. The E&N alignment has already received $11.3 million in Gas Tax funding for a Rail Trail from Langford to Victoria which will add to the higher level pedestrian and cycling path network that includes the Galloping Goose and Lochside trails. This project requires an additional $15 million to be completed. The multi-use trail component of the Johnson Street Bridge Replacement project meets the same criteria that identified the E&N Rail Trail as a priority transportation project. The E&N Rail Alignment was evaluated as an option for rapid transit service between Victoria and West Shore but was not ranked as the preferred alignment according to regional criteria including the greatest level of access to employment and population. The MoTI Evaluation of the E&N concluded that due to the size of the travel market along the alignment, the estimated ridership 2 MoTI, Evaluation of the E&N Railway Corridor: Commuter Rail, page 2 3 MoTI, Evaluation of the E&N Railway Corridor: Commuter Rail, page 40

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7 Appendix 1 Johnson Street Bridge Project Concept Multi-use Trail and Rail Components

8 Appendix 1 Page 2

9 Appendix 1 Page 3

10 Appendix 2 Johnson Street Bridge Project Concept Multi-use Trail Component Only

11 Appendix 3 Correspondence from Island Corridor Foundation, July 26, 2010

12 Appendix 4 Travel Choices Regional Transportation Policy The CRD Regional Growth Strategy includes a number of key policy initiatives including Increasing Transportation Choice which promotes the development of a balanced and sustainable transportation system providing residents with reasonable and affordable transportation choices that enhance the overall regional quality of life. In support of this initiative the CRD Board adopted the TravelChoices Regional Transportation Strategy in 2005 as the long range transportation plan for the region. The TravelChoices mission is to significantly increase the proportion of people walking, cycling, using transit, ride-sharing and other alternatives to driving alone. TravelChoices has established mode share targets for 2026 to realize the mission as outlined below. TravelChoices includes an implementation strategy which identifies short term priorities supporting these targets. In particular, it recommends the development of a five-year implementation plan that would identify multi-modal priorities, costs and potential funding sources. The targets are currently under review as part of the preparation of a new Regional Sustainability Strategy and due to recent provincial Greenhouse Gas Reduction legislation and direction from the provincial Transit Plan. TRAVEL CHOICES MODE SHARE TARGETS *CRD Current Core Urban Area may already exceed 5% In 2005, the federal government initiated the New Deal for Towns and Cities Gas Tax Funding program. The program provided communities and regions with federal gas tax rebate funds for sustainable infrastructure and transportation projects. The CRD TravelChoices Investment and Implementation Plan (TIIP) was developed to provide the basis for allocating New Deal For Towns and Cities funds in an effective manner and to promote the multi-modal vision of TravelChoices. TIIP ranked projects and proposals from municipalities and provincial agencies in terms of enhanced travel safety, support for sustainable modes of travel, network connectivity, travel mode shift and congestion relief.

13 Appendix 4 Page 3 Regionally significant projects in the CRD which have been funded from the Gas Tax program are outlined in the table below: 1. Other Gas Tax Allocations include Metro/Translink $309M 2. Provincial Transit Plan identifies $14B all sources for rapid transit ($1.2B Victoria, Kelowna, Metro Rapid Bus)