Creating more livable communities
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Gateway Position
Smart growth means development that increases quality of living for everyone and minimizing the negative impacts from our cities and towns. Over the decades, we have seen how detrimental sprawl can be to taxpayers, the local environment, to economic development, small businesses, costs of policing and services, socially-positive places, human health and safety. All of these issues are in some way related to low-density, disconnected developments that force people to choose the automobile as their only option for daily travel. Transportation is of such importance to smart growth that SGBC developed and published our own transportation policy for guiding transportation and land use planning.
Urbanization generates transportation demand. There are things that people need to be able to do, such as sleeping, cooking, eating, shopping for food/clothing and other products, working, schooling and other education, visiting friends/family, accessing necessary/emergency services and playing/recreating. ‘Access’ means bringing these things to a person through compact, mixed-use and complete neighbourhoods. ‘Mobility’, however, means bringing the person to the things, which requires an efficient mode of transportation.
The sprawl model relies on people having unfettered mobility through the automobile to get to the things they need. In the smart growth model, people don’t have to rely on being incredibly mobile in order to carry out their everyday lives because they have easy access to the different land uses that they need. Low density living makes it impossible to service people with efficient and affordable transit, which in turn means people are dependent on driving automobiles for their mobility, as access is very limited.
The Province’s Gateway Program contains four main elements: 1) widen Highway #1, 2) twin the Port Mann Bridge, while adding both 3) North and 4) South of Fraser Perimeter Roads. Providing increased capacity for mobility through the automobile will generate land uses that are reliant on continued mobility of the automobile. The first two elements are the very essence of sprawl; they create reliance on cars, detract from viable transit, create poor air quality, rely on expensive infrastructure repair and upgrading and limit positive social interactions, while being fiscally unsustainable.
Looking at the Gateway Program in light of the SGBC Transportation Policy’s Principles shows that the Program works against livability. The Transportation Policy Principles serve to create more livable and sustainable communities.
Transportation decisions and investments should be shared by all levels of government, and guided by a Transportation Hierarchy: a) Walking; b) Cycling; c) Public Transit; d) Goods and Commercial Services; e) High Occupancy Vehicles; f) Single Occupant Vehicles (SOV).
Highway expansion and twinning the Port Mann Bridge ignore the hierarchy, prioritizing the SOV over all other modes of transportation.
Urban development guided primarily by compact, efficient land use planning rather than the expansion of transportation capacity to meet increasing travel demand;
The capacity expansion of the highway and bridge are completely opposite to using compact and efficient land uses to guide transportation planning.
Infill and redevelopment within mixed-use neighbourhoods and communities with residential and employment densities sufficient to enhance the viability of higher priority transportation modes (35 people and/or jobs per hectare);
Infill is facilitated by multi-modal transportation options, not through auto-centred road capacity expansion. Sprawl negates the potential for transit.
The use of Transportation Demand Management (TDM) strategies that reduce congestion and decrease commuting costs by encouraging drivers to choose alternatives to traveling in private automobiles;
Using TDM in concert with other measures such as transit priority, HOV lanes, and off-peak travel incentives are more effective at alleviating congestion and reducing auto-dependence.
Transportation decisions designed to support land use and economic objectives as opposed to relieving short-term congestion problems caused by low density development;
Expanding capacity of roadways allows ‘latent demand’ (the people who don’t drive now because it is too inconvenient who then express their demand once the capacity supply is provided) to quickly fill up roadways. The result is the same level of congestion in a matter of years.
Transportation spending that facilitates economic activity, rather than aiming to generate jobs and investment;
Complete compact communities generate economic activity through location efficiencies. Sprawl decreases economic efficiencies due to distance between retail, consumers and producers.
Transportation infrastructure improvements designed to provide all citizens with safe, convenient and affordable access to most daily needs, including employment, education, shopping, personal services and recreation;
Increasing road capacity for SOVs will increase average speeds and overall number of vehicles using roadways. Sprawl increases per capita spending on transportation.
An informed citizenry that understands the implications of transportation investment trade-offs and advocates for a balanced approach to infrastructure spending.
The process of public engagement in the Gateway Project has not been sufficient in any way to allow for an informed or participating citizenry.
Presentation to GVRD Board
(that evening, the board voted to strongly oppose the proposed twinning)
22 September, 2006
GVRD Board of Directors
Dear Chair Jackson and Board:
Thank you for the opportunity to address the Board. I am here representing Smart Growth BC, a province-wide organization dedicated to creating more livable communities.
I wish to address the concerns we have around the proposed twinning of the Port Mann Bridge and expansion of Highway 1. While we are supportive of the components of the Gateway Program that aim to increase the Province’s economic competitiveness and improving the effectiveness of the transportation of people and goods in the Greater Vancouver Region, we do not support the proposed expansion of Highway 1 and the twinning of the Port Mann Bridge.
We believe that the negative consequences of expanding the bridge and highway are many, but we will focus on three issues:
Land use impacts and the principles in the LRSP
Experience from other highway expansion projects
Examination of options
Land use impacts and the LRSP
Our analysis indicates that the primary reasons for traffic congestion in the Region are:
a prevalence of automobile-oriented (low-density, segregated land uses) development resulting in dispersed travel patterns and predominantly single-occupant vehicle travel;
inadequate transit service due to lack of funding as well as low density development that does not support transit
The Highway 1/Port Mann expansion project would not only fail to address, but would reinforce and induce an increase in these root causes of Greater Vancouver’s transportation challenges. The greatest barrier to goods movement in the Lower Mainland is not a lack of road space but the volume of single occupant vehicles and the distances that people are required to travel to access destinations and services.
As the staff report has pointed out, and as Johnny Carline’s report has emphasized, the expansion of the Bridge and Highway are not consistent with the Livable Region Strategic Plan, or with Translink’s long-range transportation plan. The expansions will ultimately undermine much of the progress made in many parts of the region towards building compact communities and providing transportation options. Instead, the consequences of the highway expansion will result in:
Increased traffic congestion – it may reduce congestion on the Bridge and on Hwy 1 in the short term, but it will inevitably lead to traffic congestion on a much greater scale in the long term, and it will spread to feeder roads and intersections. The impacts of this decision may not be realized for years, but the legacy of an ever more sprawling and congested region will rest with your position.
Negative health impacts – air pollution from the increased number of vehicles, compounding of the physical inactivity and obesity problems due to non-walkable communities. Our recent study “Promoting Public Health through Smart Growth” available on our website (www.smartgrowth.bc.ca) clearly outlines the many serious health problems associated with automobile-dependent land use.
More poorly planned, sprawling, automobile-dominated communities, not just in the GVRD, but in the Fraser Valley, leading to more traffic going through your communities.
Addressing the traffic congestion problem needs to be done through a smart growth lens of planning, which creates more compact, complete communities that are walkable, bicycle and transit friendly, that foster more local economic development opportunities, and that reduce the need for vehicular (SOV) travel.
We should also be wary of endorsing a project that is based on 20th century assumptions about oil supplies and gas prices. We have to question these assumptions and the ability to sustain our current automobile travel patterns in the 21st century, particularly with growing concerns over the impacts of global warming, to which transportation is the major contributor in this region.
Experience from other highway expansions
There is now a significant body of evidence from numerous studies and examples that demonstrate that increasing road capacity ultimately increases traffic and traffic congestion. To quote a few:
Portland’s proposed Highway 217 expansion from four to six lanes:
$500 – 600 million dollars
will increase traffic on adjacent or linking highways (I-5 and Hwy 26)
increase traffic congestion during construction delays
projected maximum time savings of 3.5 minutes of average travel time (if traveling the complete length)
The widening of I-270 in Montgomery County, Maryland in the late 1980’s
Traffic conditions improved briefly. Then land development boomed in the corridor. “In the five years before construction began, officials endorsed 1,745 new homes in the area stretching from Rockville to Clarksburg. During the next five years, 13,642 won approval.” (Washington Post, January 4, 1999) By 1997, I-270 was routinely overrunning its designed capacity, and peak-hour traffic volumes on some segments had surpassed levels forecasted for 2010.
Vancouver – Seattle
Greater Seattle, compared to Greater Vancouver, has a much more significant traffic congestion problem, and has paved over land for development at a higher and faster rate than Vancouver, largely due to the significant highway expansions.
Texas Transportation Institute
A 15 year study of 70 urban areas by the Texas Transportation Institute concluded that “metro areas that invested heavily in road capacity expansion fared no better in easing congestion than metro areas that did not. Trends in congestion show that areas that exhibited greater growth in lane capacity spent roughly $22 billion more on road construction than those that didn't, yet ended up with slightly higher congestion costs per person, wasted fuel, and travel delay.”
Examination of options
The GVRD board should not be supporting a plan that has not provided an examination of all options to reduce congestion. An examination of options should be guided by a set of evaluation criteria whose goals support the LRSP while reducing traffic congestion:
Evaluation criteria
Net Regional Highway Congestion Benefits: A determination of the net highway congestion relief provided by widening the Port Mann Bridge and Highway 1, incorporating: (1) reduced travel times as a result of the expansion; (2) delays on the Bridge and Highway 1 during construction; (3) increased or decreased congestion feeder highways and roads as a result of increased traffic on the Bridge and Highway 1 attributable to the expansion.
Congestion Relief Cost Comparisons to Other Regional Projects: Comparisons of the costs per person/hour of highway congestion relief for widening the Bridge and Highway 1, including related improvements to interchanges, arterials and etc., relative to other regional transportation investments, past, present or future, for which such comparisons can reasonably be made.
Impact on creating a livable region by implementing the current and updated Livable Region Strategic Plan, as measured by new jobs and housing located in regional and town centers, at transit station areas and along other transit corridors and arterials.
Environmental benefits and costs, such as air pollution, water and noise pollution benefits and costs, and not just on the Bridge and Highway, but including impacts from increased development.
Health impacts of increased traffic, more automobile dominated development, non-walkable communities.
Options that should be considered in any highway expansion study:
Interchange improvements-only alternative, e.g., ramp metering that allows priority vehicles to enter the highway and discourages SOVs;
Arterials-only alternative, that examines improvements to a wide array of arterials that might deliver equal or better congestion relief and other benefits;
Queue-jumper lanes for buses and high-occupancy vehicles.
Transit alternatives, including options that have the effect of reducing congestion on the highway even if they are in different alignments or areas, but that are roughly comparable in cost for the benefits delivered.
Tolling, when considered as part of a financing system for a new facility. But it should also be studied separately from additional lane capacity in order to give the public and policy makers some way of measuring the true value to travelers;
Other transportation demand management techniques and incentives, such as congestion pricing, implemented on a scale comparable to the cost of the proposed additional lanes and interchange improvements;
Projects designed to deliver maximum jobs and housing to growth centres, to prevent the current SOV demand from dispersed employment centers such as business parks;
Transportation system management investments, including intelligent transportation systems, implemented on a scale comparable to the cost of the proposed additional lanes and interchange improvements;
Job location and relocation incentives, and incentives for working hours that result in off-peak commutes, as implemented on a scale comparable to the cost of the proposed additional lanes and interchange improvements;
Investment in rail and water infrastructure for movement of goods; expand light rail services to south of the Fraser communities and expand other commuter rail opportunities.
Conclusion
We urge the GVRD Board take a strong position against the proposed expansion of the Port Mann Bridge and Highway 1. We understand the importance of collaboration with the Province, and the need for them to provide support to your local transportation projects. However, the consequences of just bowing into Province are severe. The widening of the Bridge and Highway will have negative long term impacts on land use patterns and transportation modal splits that will be felt in the region for many generations.
The GVRD needs to ask the Province to undertake a thorough examination of options to expanding the Bridge and Highway, and to avoid another potential transportation megaproject failure such as the fast-ferries project that cost hundreds of millions of dollars with no net benefit.
The LRSP has won international awards and is a model of exemplary regional planning. The GVRD board needs to exert its leadership in ensuring that this region remains one of the most livable in the world. The legacy we need to leave behind is one where sprawl accommodated by the proposed twinning of the Port Mann Bridge and Highway 1 is rejected, and instead a region of healthy, compact, transit-oriented, walkable communities is created.
Thank you for your attention.
Sincerely,
Cheeying Ho
Executive Director