EXECUTIVE COMMITTEE

Wednesday, April 2, 2014 11:45 AM

Henry Baker Hall, Main Floor, City Hall

Office of the City Clerk

Public Agenda Executive Committee Wednesday, April 2, 2014

Approval of Public Agenda Minutes of the meeting held on March 12 and 14, 2014.

Administration Reports EX14-13 Regina Revitalization Initiative (RRI) - Stadium Project Delegation of Authority, Financial Model Update and External Financing Recommendation 1. That the following delegation of authority be approved: a. That all authority delegated to the Deputy City Manager & CFO, Corporate Services in City Council reports CR 13-6, CR 13-8 and CR13-96 be reassigned to the Deputy City Manager & COO or his or her delegate. b. That City Council authorizes the Deputy City Manager & COO or his or her delegate to prepare, negotiate, review, amend and approve any additional documentation, instruments, assurances and auxiliary closing documents as may be necessary, to give full effect to the Project Agreement entered into with the successful proponent identified and to complete the Project (the Additional Documentation). c. That City Council authorize the City Clerk to execute any additional documentation after review and approval from the City Solicitor. 2. That the information contained within this report, updating the financial model estimates previously approved by City Council in CR 13-6, be received and filed. 3. That City Council authorizes the Deputy City Manager & COO to negotiate external financing, including signing any necessary documents, to a maximum of $100.4 million to address the loan financing requirements of the RRI Stadium Project. 4. That a report summarizing the financing arrangements to be negotiated, to a maximum of $100.4 million, be forwarded to City Council with a bylaw once the external financing has been arranged.

Office of the City Clerk

EX14-14

SAMA Annual Meeting Recommendation That the Executive Committee make a recommendation to City Council for a member of City Council to be the voting delegate for Regina at the Saskatchewan Assessment Management Agency (SAMA) Annual Meeting on April 16, 2014.

Other Reports EX14-15 Executive Committee: Downtown Transportation Study (DTS) Phases Two and Three and Direction for Downtown Transit in Regina Recommendation 1. That the Downtown Transportation Study (DTS) Phases Two and Three Report as outlined in Appendix A be APPROVED and the Administration be directed to incorporate the specific initiatives in the DTS as outlined in Appendix B into the appropriate work plans as budget and resources permit. 2. That, recognizing that 11th Avenue is a major destination for transit customers, Regina Transit buses continue to serve stops on 11th Avenue and measures be put in place to mitigate the impacts of these transit stops on businesses fronting 11th Avenue, including: Providing adequate transit stop amenities including waste receptacles and attractive shelters to reduce littering and discourage use of building entrances; Relocation of eastbound bus stops from in front of Old City Hall Mall to the block between Lorne Street and Cornwall Street, with modifications to Lorne Street to ensure appropriate turning movements can be provided; Design of a dual street transit hub that includes Lorne Street between 11th and 12th Avenues, reducing the number of transfers on 11th Avenue; Expanding existing security patrols over the entire business day on 11th Avenue between Cornwall Street and Hamilton Street; Adjusting schedules and timing points of transit routes to minimize layover time on 11th Avenue; Reviewing ridership patterns and adjusting bus route assignments to stops to reflect available sidewalk space; and, Undertaking a passenger education and awareness program to discourage loitering in private buildings and littering.

Office of the City Clerk

3. That $200,000 in funding be allocated from the General Fund Reserve for the enhanced security patrol, transit stop amenities, increasing transit activities on Lorne Street and the relocation of bus stops from in front of Old City Hall and that opportunities for supplemental or shared funding from Regina Downtown Business Improvement District (RDBID) and others be explored. 4. That a downtown transit shuttle service, to replace regular transit services is not feasible at this time, but that the City of Regina retain the concept as a long-term option to support redevelopment and connect the downtown with the new stadium, the Regina Revitalization Initiative (RRI), and the Warehouse District. 5. That the recommended plan for additional cycling facilities on downtown streets as identified in the DTS be included in the City-wide Transportation Master Plan. 6. That Administration be directed to establish a Downtown Transportation Working group to provide open channels of communication to address emergent issues related to downtown transportation and that this working group include representation from RDBID, Regina Transit, City Operations, and the Accessibility Advisory Committee. 7. That strategies for the management and supply of parking in the downtown be finalized through the Downtown and Vicinity Parking Study. 8. That item MN13-4 Downtown Transit Shuttle Service be removed from the List of Outstanding Items for City Council. 9. That the Administration explore a partnership with other organizations to build a new parking structure downtown. 10. That this report be forwarded to the April 14, 2014 City Council meeting for consideration.

Resolution for Private Session

AT REGINA, SASKATCHEWAN, WEDNESDAY, MARCH 12, 2014 AT A MEETING OF THE EXECUTIVE COMMITTEE HELD IN PUBLIC SESSION AT 11:45 AM
These are considered a draft rendering of the official minutes. Official minutes can be obtained through the Office of the City Clerk once approved. Present: Councillor Bob Hawkins, in the Chair Mayor Michael Fougere Councillor Bryon Burnett Councillor Barbara Young Councillor Sharron Bryce Councillor John Findura Councillor Terry Hincks Councillor Wade Murray Councillor Mike ODonnell Councillor Shawn Fraser Councillor Jerry Flegel

Regrets:

A/City Clerk, Erna Hall Also in Attendance: City Manager & CAO, Glen Davies Solicitor, Christine Clifford Deputy City Manager & COO, Brent Sjoberg A/CFO, Pat Gartner Executive Director, Planning, Jason Carlston A/Executive Director, City Services, Neil Vandendort Director, Development Engineering, Kelly Scherr Director, Planning, Diana Hawryluk Coordinator, Social Development, Janice Solomon Committee Assistant, Mavis Torres APPROVAL OF PUBLIC AGENDA Councillor Sharron Bryce moved, AND IT WAS RESOLVED, that the agenda for this meeting be approved, as submitted, and that the delegations be heard in the order they are called by the Chairperson. ADOPTION OF MINUTES Councillor Wade Murray moved, AND IT WAS RESOLVED, that the minutes for the meeting held on February 12, 2014 be adopted, as circulated.

-2ADMINISTRATION REPORTS EX14-8

Wednesday, March 12, 2014

City Administration Reorganization and Bylaw Amendments Recommendation That the City Solicitor be instructed to prepare the necessary changes to The Regina Administration Bylaw to give effect to the organizational changes contained in the body of this report.

Chad Novak, representing the Saskatchewan Taxpayers Advocacy Group addressed the Committee. Councillor Terry Hincks moved, AND IT WAS RESOLVED, that the recommendation contained in the report be concurred in. EX14-9 Homelessness Partnering Strategy 2014-2019 Recommendation 1. That Council endorse, in principle, the Homelessness Partnering Strategy and Housing First by continuing to complement the work of the federal government through existing City programs. 2. That the Administration continue to provide regular updates, including any financial implications, to the Mayors Housing Commission and Council on the Homelessness Partnering Strategy, Housing First and other homelessness issues. 3. That item E14-8 be removed from the list of outstanding items for the Executive Committee. 4. That this report be forwarded to the March 24, 2014 meeting of City Council. Chad Novak, representing the Saskatchewan Taxpayers Advocacy Group addressed the Committee. Councillor Barbara Young moved, AND IT WAS RESOLVED, that the recommendations contained in the report be concurred in. CITY CLERK'S REPORT E14-10 Committee Structure Review Recommendation 1. That no changes be made to the existing structure, membership or mandate of the following Main Committees of Council, as outlined in Bylaw No. 2009-40, Section 5(1): a. Community and Protective Services Committee;

b. c. d. e. f. g.

-3Wednesday, March 12, 2014 Emergency Measures Committee; Executive Committee; Finance and Administration Committee; Mayors Housing Commission Public Works Committee Regina Planning Commission

2. That notwithstanding recommendation (1), that the Public Works Committee be renamed Public Works and Infrastructure Committee. 3. That Administration undertake a review of items being submitted for committee consideration to ensure that the item is placed on the appropriate committee agenda and provide a report back to Executive Committee by March 31, 2015. 4. That no changes be made at this time to the existing structure, membership or mandate of the following Secondary Committees of Council, as outlined in Bylaw 2009-40, Section 17(1): a. Accessibility Advisory Committee b. Arts Advisory Committee c. Community Leaders Advisory Committee d. Community Services Advisory Committee e. Environment Advisory Committee f. Municipal Heritage Advisory Committee g. School Board/City Council Liaison Committee h. Youth Advisory Committee 5. That members of Secondary Committees of Council whose terms have expired remain as members of the committee until such time as they are either re-appointed or a successor is appointed by Council. 6. That notwithstanding recommendation (3), that the Administration prepare a report outlining leading practices, inter-jurisdictional comparisons and options respecting civic engagement practices that could enhance, complement or replace the existing committee structure and related practices and return to Executive Committee in Q3 2014. 7. That the City Solicitor prepare the necessary bylaw changes respecting recommendations (2) and (5). Dr. Greg Argue, representing the Strategy by Design addressed and answered questions of the Committee. Mayor Michael Fougere moved, AND IT WAS RESOLVED, that the recommendations contained in the report be concurred in.

-4-

Wednesday, March 12, 2014

RESOLUTION FOR PRIVATE SESSION Councillor Sharron Bryce moved, AND IT WAS RESOLVED, that in the interest of the public, the remainder of the items on the agenda be considered in private. RECESS Councillor Sharron Bryce moved, AND IT WAS RESOLVED, that the meeting recess for five minutes. Meeting recessed at 1:30 pm

Chairperson

Secretary

AT REGINA, SASKATCHEWAN, FRIDAY, MARCH 14, 2014 AT A SPECIAL MEETING OF THE EXECUTIVE COMMITTEE HELD IN PUBLIC SESSION AT 11:45 AM
These are considered a draft rendering of the official minutes. Official minutes can be obtained through the Office of the City Clerk once approved. Present: Councillor Bob Hawkins, in the Chair Mayor Michael Fougere Councillor Bryon Burnett Councillor Sharron Bryce Councillor John Findura Councillor Terry Hincks Councillor Wade Murray Councillor Mike ODonnell Councillor Jerry Flegel Councillor Shawn Fraser Councillor Barbara Young

Regrets:

A/City Clerk, Erna Hall Also in Attendance: City Manager & CAO, Glen Davies Executive Director, Legal & Risk, Byron Werry Deputy City Manager & COO, Brent Sjoberg A/CFO, Pat Gartner A/Executive Director of City Services, Neil Vandendort Solicitor, Mark Yamen Manager, Rod Schmidt, Stadium Development Committee Assistant, Mavis Torres APPROVAL OF PUBLIC AGENDA Councillor Sharron Bryce moved, AND IT WAS RESOLVED, that the agenda for this meeting be approved, after approving the addition of item EX14-12 Regina Revitalization Initiative (RRI) Stadium Project Notification of Preferred Proponent. The motion was put and declared CARRIED UNANIMOUSLY.

-2CITY CLERK'S COMMUNICATIONS EX14-11

Friday, March 14, 2014

RRI Stadium Project - RFP Notification of Preferred Proponent Recommendation That this communication be received and filed.

(Mayor Michael Fougere declared a conflict of interest stating that his previous work with the construction industry may be viewed as a conflict. Mayor Fougere left the meeting) Chad Novak, representing the Saskatchewan Taxpayers Advocacy Group addressed the Committee. Bill Clary, representing himself addressed and answered questions of the Committee. Councillor Terry Hincks moved, AND IT WAS RESOLVED, that this communication be received and filed. ADMINISTRATION REPORTS EX14-12 Regina Revitalization Initiative (RRI) Stadium Project - Notification of Preferred Proponent Recommendation That this report be forwarded to the March 24, 2014 meeting of City Council for information. Councillor Sharron Bryce moved, AND IT WAS RESOLVED, that the recommendation contained in the report be concurred in.

ADJOURNMENT Councillor John Findura moved, AND IT WAS RESOLVED, that the meeting adjourn. The meeting adjourned at 12:45 p.m.

Chairperson

Secretary

Tracking Number
April 2, 2014 To: Members, Executive Committee Regina Revitalization Initiative (RRI) - Stadium Project Delegation of Authority, Financial Model Update and External Financing

Re:

RECOMMENDATION 1. That the following delegation of authority be approved: a. That all authority delegated to the Deputy City Manager & CFO, Corporate Services in City Council reports CR 13-6, CR 13-8 and CR13-96 be reassigned to the Deputy City Manager & COO or his or her delegate. b. That City Council authorizes the Deputy City Manager & COO or his or her delegate to prepare, negotiate, review, amend and approve any additional documentation, instruments, assurances and auxiliary closing documents as may be necessary, to give full effect to the Project Agreement entered into with the successful proponent identified and to complete the Project (the Additional Documentation). c. That City Council authorize the City Clerk to execute any additional documentation after review and approval from the City Solicitor. 2. That the information contained within this report, updating the financial model estimates previously approved by City Council in CR 13-6, be received and filed. 3. That City Council authorizes the Deputy City Manager & COO to negotiate external financing, including signing any necessary documents, to a maximum of $100.4 million to address the loan financing requirements of the RRI Stadium Project. 4. That a report summarizing the financing arrangements to be negotiated, to a maximum of $100.4 million, be forwarded to City Council with a bylaw once the external financing has been arranged. CONCLUSION The Administration is nearing the completion of the procurement for the Regina Revitalization Initiative Stadium Project (the Project). The identification of a Preferred Proponent from the Request for Proposals (RFP) stage of the Project occurred on March 14th. The next stage in the process is for the City to enter into a design-build-finance agreement with the Preferred Proponent (the Project Agreement) and to achieve commercial close of the transaction. In order to facilitate the closing of the transaction, the following items require City Council approval: 1) Due to organizational structure changes within the City, clarification is required to the delegated authority previously provided by City Council; 2) Council report CR 13-96 provided the Administration the delegated authority to enter into the Project Agreement with the Preferred Proponent. In addition to the Project Agreement, several other ancillary documents will be required to complete the transaction. The Administration recommends that City Council authorize the Deputy

-2City Manager & COO or his or her delegate to prepare, negotiate, review and approve such additional documentation, with the City Clerk authorized to execute such additional documentation, as may be required to complete the Project. On January 28, 2013 (CR13-6) City Council approved the financial model for the Project. The financial model has been updated based on more recent information. There are no changes to the overall financial commitment figures relating to the capital costs, total debt, or mill rate increases, as previously contemplated and approved by Council. In addition to the process related recommendations related to the Project, this report is also seeking the approval of Council to authorize the Deputy City Manager & COO to negotiate the remaining external financing required for the Project. This will include signing any necessary documents, to a maximum of $100.4 million. Once negotiated, this external financing must be approved by City Council. BACKGROUND Since its inception in the spring of 2012, several elements of the Project have been before City Council to provide information and receive approvals. A summary of the Council reports to date is as follows: 1) July 23, 2012 CR 12-102 City Council provided the Administration with the direction to develop definitive funding agreements with the Province of Saskatchewan (the Province) and the Saskatchewan Roughrider Football Club Inc. (SRFC), based upon the memorandum of understanding provided; 2) September 17, 2012 CR 12-134 City Council authorized the Deputy City Manager & CFO to proceed with a design-build-finance procurement approach for the Project, consisting of a Request for Qualifications (RFQ) and RFP process; 3) January 28, 2013 CR 13-5 City Council approved the concept design presented and authorized the administration to proceed with the procurement phase of the Project; 4) January 28, 2013 CR 13-6 City Council approved the funding model for the Project, including the related borrowing amounts and other funding sources, and authorized the Deputy City Manager & CFO to negotiate and approve the funding agreements, with the Province and the SRFC and the leasing arrangements with the SRFC; 5) January 28, 2013 CR 13-8 City Council directed the Administration to issue a RFQ for the Project, and delegated authority to the Deputy City Manager & CFO to award an opportunity to three successful proponents, identified by the RFQ process to participate in the RFP process for the Project; 6) July 8, 2013 CR 13-96 City Council directed the Administration to issue the RFP for the Project, and delegated authority to the Deputy City Manager & CFO to award a contract to the successful proponent identified by the RFP process; 7) July 8, 2013 CR 13-97 City Council approved an offer to lease with SaskSport and authorized the City Solicitor and Deputy City Manager & CFO to approve the final form lease agreement with SaskSport;

-38) January 27, 2014 CM 14-1 City Council passed The Regina Revitalization Initiative Debenture Bylaw, 2014, which completed the borrowing of $100.0 million from the Municipal Financing Corporation of Saskatchewan; and 9) March 24, 2014 IR 14-5 City Council received notification from the Administration of the Preferred Proponent that was identified by the RFP stage of the Project. With the initial $100 million borrowing from the Province completed, the remaining $100.4 million in borrowing relating to the Citys contributions remains outstanding. The long-term debt of the City is subject to the provisions of The Cities Act and the Citys debt limit as authorized by the Saskatchewan Municipal Board. The following are the applicable sections of The Cities Act: "101(1) No Council shall delegate: (f) its power to borrow money, lend money or guarantee the repayment of a loan pursuant to section 133 to 153; 133(1) The Saskatchewan Municipal Board may establish a debt limit for each city, taking into account the factors set out in subsection 23(2) of The Municipal Board Act. (2) No city shall borrow money if the borrowing will cause the city to exceed its debt limit, unless the borrowing is approved by the Saskatchewan Municipal Board. 134(1) A city may only borrow moneys if the borrowing is authorized by a borrowing bylaw. (2) A borrowing bylaw must contain details of: (a) the amount of money to be borrowed and, in general terms, the purpose for which the money is to be borrowed; (b) the rate or rates of interest, the term and the terms of repayment of the borrowing; and (c) the source or sources of money to be used to pay the principal and interest owing under the borrowing." Legislation allows for cities to incur long-term debt without application to the Saskatchewan Municipal Board, providing the debt does not exceed the amount authorized by the Saskatchewan Municipal Board pursuant to Section 133(2). In 2013, the City requested and received approval from the Saskatchewan Municipal Board for a debt limit of $450.0 million. DISCUSSION Delegation of Authority The Administration requires clarification of City Councils previous approval authority for the Project that was provided in CR13-6, CR14-8 and CR13-96 due to the corporate reorganization that took place on January 1, 2014. As the position of Deputy City Manager & CFO, Corporate Services has been realigned, the Administration recommends that City Council reassign the authorities provided to the Deputy City Manager & CFO, Corporate Services to the Deputy City Manager & COO, or his or her delegate. This modification will allow the Project to continue forward toward delivery on the overall objectives.

-4Additional Documentation Following the notification of the Preferred Proponent, the City is working towards financial close of the transaction in May of 2014. As part of the financial close of the transaction, the City may need to enter into the additional documentation to give full effect to the Project Agreement. The additional documentation could include such items as agreements with lenders, warranty certificates, undertakings, closing certificates and legal opinions, all of which are typical for large commercial transactions of this type. Administration is seeking delegated authority for the Deputy City Manager & COO to approve such additional documentation. Financial Modelling As noted, the commercial and financial close process is expected to be completed in May of 2014. To ensure the proper authorities are in place to enter into this contract, it is important to ensure City Council is aware of the most current financial estimates related to the project. On January 28, 2013 (CR13-6) City Council approved the financial model for the Project. As the Project is now at a more advanced stage, the model can be updated with more recent and accurate information. This report provides City Council with a financial model that has been updated with the information known to date, and shows no changes to the overall financial commitment figures relating to capital cost, total debt, or mill rate increases, as previously contemplated and approved by Council. The financial model for the Project approved by Council (CR13-6) and contemplated below includes the pursuit of up to $200.4 million in debt over a period of 30 years. This represents the $100.0 million loan from the Province for capital that was approved by Council (CM 14-1) and an additional $100.4 million City debt, which includes $67.4 million City debt for capital and $33.0 million City debt for interim cash flow purposes in 2015. As the procurement phase of the Project is nearly complete, the City (working with the Saskatchewan Roughrider Football Club Inc. and the Regina Exhibition Association Limited) has obtained more accurate financial, costing and operational estimates from which it can update the financial model for the Project. The following is the most up to date financial model as of March 2014:
Expenditure Expense Amount (in millions $) 250.0 28.2 Funding Source Funding Amount (in millions $) 80.0 100.0 25.0 3.3 2.5 67.4 278.2

Capital Cost Capital Stadium Capital Site Preparation

Total Capital Cost Maintenance & Debt Servicing Costs Maintenance Provincial Loan Principal Payments Provincial Loan - Interest Payments City Capital Debt Principal Payments City Debt Interest Payments City Interim Debt Financing Principal and Interest Payments Total Maintenance & Debt Servicing Costs Contingency Total

278.2

Capital Funding Provincial Grant Provincial Loan SRFC City Land Contribution City Cash City Loan Total Capital Funding Sources Maintenance & Debt Servicing Funding SRFC Facility Fee SaskSport Lease Agreement Property Tax Interim Debt Mosaic Cost Avoidance Advertising/Sponsorships Interest Earned Total Maintenance & Debt Servicing Funding Sources

188.8 100.0 76.1 67.4 56.7 59.3

104.6 75.0 308.9 33.0 23.8 15.0 9.6

548.3 21.6 569.9

569.9

-5All revisions made to the financial model for the Project were able to be accommodated through the various contingencies built into the financial model, previously approved by Council on January 28, 2013 (CR 13-6). There are no changes to the overall financial commitment figures relating to capital costs, total debt, or mill rate increases, as previously contemplated and approved by Council. The updated financial model simply reflects changes to the anticipated expenditures and revenues within the model, due to changing interest rates and assumptions that were clarified as the Project has progressed. The contingencies built into the January 28, 2013 financial model are available to provide an additional $47.5 million in revenue to offset additional costs. These contingencies were built into the model to mitigate risks associated with the assumptions used in the model, as expenditures and revenues are based on the best information available at the time they are projected. The changes to anticipated expenditures and revenues in the updated financial model are outlined below. The revised expenditures in the updated model are: 1) Increased interest rates that were encountered in 2013. The interest rate for the $100.0 million Provincial loan that was approved by Council on January 27, 2014 (Bylaw 2014-9) was 3.99% rather than 3.5%, which was the rate included within the January 28, 2013 financial model. 2) As previously known and approved in CR 13-6, in order to fund the Citys portion of the cost related to the Project and to ensure appropriate funding is available for the City for the Project and other matters, the City will be borrowing $100.4 million sometime during 2014-2015. As approved in CR 13-6, this amount included $67.4 million of City debt for capital and $33.0 million City debt for interim cash flow purposes. The exact timing of the borrowing will be based upon the Citys cash flow needs as well as interest rate trends. The January 28, 2013 financial model assumed a rate of interest of 4.0%, but due to market trends, it is now estimated that this interest rate will be 4.5%. The revised revenues included in the updated model are: 1) Facility fees ($4.6 million increase) as a contingency, the City did not include estimated revenue for CFL playoff games and additional revenue in expected Grey Cup years in the January 28, 2013 model. These items have now been included within the updated model. 2) Property taxes ($47.0 million increase) as a contingency within the previous financial model, a portion of the mill rate to be ear-marked for the Project was not allocated for the last nine years of the model. The mill rate to be ear-marked for the Project is now allocated for the entire term of the model, to specifically identify the available contingency within the projections. 3) Interest revenue ($4.1 million decrease) the City maintains a fund balance at certain points during the Project and is able to earn interest on these amounts. The anticipated revenue available from this interest earned has been decreased due to lower investment interest rates. The updated financial model assumes a rate of 3.2% versus the rate of 3.5% that was used in the January 28, 2013 model. The contingencies address the changes in market conditions and Project assumptions known to date, without altering the overall financial commitment relating to borrowing or mill rate as previously approved by Council. The updated financial model shows an estimated contingency of

-6$21.6 million. Of the $47.5 million in contingency available in the January 28, 2013 financial model approved by Council, $25.9 million has been allocated to mitigate the projected increases related to the most up to date borrowing costs. External Financing On January 28, 2013, City Council approved the funding model for the RRI Stadium Project. Included in the funding model is up to $100.4 million of debt ($67.4 million of City debt for capital and $33.0 million City debt for interim cash flow purposes). Due to the current market conditions with low interest rates, coupled with projections of higher interest rates in the future, the Administration is recommending that the City proceed with up to a $100.4 million debt issuance in 2014. While a debt issuance requires a bylaw approved by City Council, due to the nature of the capital markets, it is necessary for the Deputy City Manager & COO to have the authority from City Council to undertake the borrowing, with the details of the borrowing subsequently approved by City Council by way of a borrowing bylaw. Similar to the recent issuance of the $100.0 million Provincial loan, this approach to borrowing has been followed in the past and recognizes the need to provide a quick response to the fiscal agents. The authority granted to the Deputy City Manager & COO is subject to the approval of a bylaw by City Council. Key points with respect to this process are: City Council has the authority to not proceed with a debt issue on the terms conditionally agreed to by the Deputy City Manager & COO. However, if City Council did not approve the borrowing bylaw based on the details agreed to with the fiscal agents, there could be irreparable harm done to the City's ability to borrow externally. The timing of external borrowing is dependent on market conditions. However, once the Deputy City Manager & COO authorizes the external financial institution to proceed, the debt issuance must be completed within several days to ensure that committed rates are obtained. Given the schedule of City Council meetings there is the potential a special City Council meeting would be required. With a potential financing of up to $100.4 million, the City's position relative to the authorized debt limit of $450.0 million is as detailed in the following table.

Water and Sewer Utility Debt(1) General Debt(1) Service Agreement Fee Credits - The Creeks(2) Committed General Capital Borrowing (2010, 2011, & 2012 Budgets)(3) Committed Utility Borrowing (2012 Budget) RRI Stadium $100 million Debt Current Committed Total RRI Stadium $100.4 million debt Total
Notes:
(3)

56,075,904 21,124,096 1,000,000 15,000,000 23,000,000 100,000,000 216,200,000 100,400,000

316,600,000

-7(1) Outstanding balance at December 31, 2013. (2) The maximum debt that could be incurred by the City as per the borrowing bylaw agreements. (3) To date, this debt has been authorized but not issued.

As detailed in the above table, a proposed borrowing of $100.4 million is within the authorized debt limit. It should be noted that the debt limit of $450.0 million was not intended to represent the theoretical maximum debt that could be sustained by the City of Regina. The limit was requested on the basis that it met the Citys projected maximum debt requirement for the foreseeable future. While the projected debt after issuance of the $100.4 million in debt is below the debt limit, it is important to note that in the next five years, debt is expected to be very close to the debt limit due to future debt related to the wastewater treatment plant. RECOMMENDATION IMPLICATIONS Financial Implications The first five years of the financial plan, beginning 2012, has a substantial financial impact on the City. A $2.5 million General Fund Reserve contribution was required in 2012 to fund project management and consulting costs. The Provincial contribution assists the City with its early year cash flows. However, debt is required to manage cash out flows for construction progress payments. As previously contemplated and approved in CR 13-6, while the financial model shows the Project fully funded over the 30 year time period, there are individual years where the cumulative cash flow is temporarily negative. These negative cash flows may need to be temporarily funded by the Citys available cash/reserves, which has no impact on the revenues or expenditures within the model. As planned, repayment of debt principal and interest will begin in 2014. As such, a consecutive ten year property tax mill rate increase of 0.45% which started in 2013 will be required to maintain future financing and maintenance payments. As a contingency within the financial model approved by Council on January 28, 2013, a portion of the mill rate to be ear-marked for the Project was not allocated for the last nine years of the model. The mill rate to be ear-marked for the Project is now allocated for the entire term of the model, to specifically identify the available contingency. In addition, a cumulative annual growth rate of 2% is assumed on the property tax revenue accumulated annually. Interest earnings will accrue on any unspent stadium funding and be allocated to the Stadium Project. As noted, if any of assumptions in the financial model change or do not come to realization, contingent revenue options will be required and brought forward in future budget requests. In the updated financial model, the 30 year capital commitment to the Project is $278.2 million and the projected financing and maintenance commitment in the financial model equates to $548.3 million before contingency, and $569.9 million including contingency. At the July 23, 2012 City Council meeting the financing and maintenance commitment was initially estimated at $675.0 million. Therefore, the updated financial model remains more favourable than the initial Project estimates. As noted, the financial projections contain various estimates and risks that are subject to change until final contracts and/or pricing is achieved. The revenue funding split is $180.0 million from the Provincial contribution and loan, $75.0 million from SaskSport, $144.6 million from the SRFC and the remaining $448.5 million in funding from various City revenue streams.

-8Environmental Implications None related to this report. Strategic Implications Having a funding model in place helps ensure the project can be paid for and the goals of the project can be met, including the long-term asset management requirements. The Stadium Project is the first step in completing the overall Regina Revitalization Initiative (RRI) plan. The next phases would include the Railyard Renewal Project and the Taylor Field Neighbourhood Project. Other Implications None related to this report. Accessibility Implications None related to this report. COMMUNICATIONS The RRI website, ReginaRevitalization.ca, was launched on September 19, 2012 to house and share information relating to the Project. The website is regularly updated to include additional information. Administration will continue to keep the public and other stakeholders informed of progress and decisions related to the Project. Public Notice has been given as required by Section 101 and 102 of The Cities Act and Bylaw 2003-8. DELEGATED AUTHORITY This report requires City Council approval. Respectfully submitted, Respectfully submitted,

Brent D. Sjoberg, Deputy City Manager & COO

Report prepared by: Curtis Smith, Manager Policy & Risk Management Mark Yemen, Legal Counsel

Glen B. Davies City Manager & CAO

EX14-14
April 2, 2014

To:

Members, Executive Committee SAMA Annual Meeting

Re:

RECOMMENDATION That the Executive Committee make a recommendation to City Council for a member of City Council to be the voting delegate for Regina at the Saskatchewan Assessment Management Agency (SAMA) Annual Meeting on April 16, 2014. CONCLUSION The Saskatchewan Assessment Management Agency (SAMA) has scheduled its annual general meeting for April 16, 2013 in Regina. SAMAs Bylaws require that voting delegates be an elected official of, and be appointed by, a Municipal Council. Non voting delegates are also allowed to register and attend the meeting. Voting occurs on resolutions submitted to the SAMA Board. BACKGROUND The Saskatchewan Assessment Management Agency (SAMA) is holding an annual general meeting on April 16, 2014 and City Council may appoint a voting delegate and other members of council and administration may register as non voting delegates. DISCUSSION SAMA has scheduled its annual general meeting for April 16, 2013 in Regina. SAMAs Bylaws require that voting delegates be an elected official of and be appointed by a Municipal Council. Non voting delegates are also allowed to register and attend the meeting. Voting occurs on resolutions submitted to the SAMA Board. The Bylaws of SAMA require that City Council appoint one voting delegate and other nonvoting delegates for the SAMA Annual General meeting to be held on April 16, 2014 at the Saskatoon Travelodge. Councillor Murray sits on the SAMA Board of Directors as the representative appointed by SUMA and as a SAMA Board member may be conducting business at the meeting on behalf of the board therefore City Council could appoint another member as the voting delegate. RECOMMENDATION IMPLICATIONS Financial Implications The registration fees and costs for the SAMA Annual General Meeting are within the 2014 budget.

-2Environmental Implications None with regards to this report Policy and/or Strategic Implications SAMA is a strategic partner in providing advice and forwarding improvements to the assessment system in the province. Other Implications None with regards to this report. Accessibility Implications None with regards to this report. COMMUNICATIONS A copy of this report will be provided to SAMA. DELEGATED AUTHORITY This report must be considered by City Council.

Respectfully submitted,

Respectfully submitted,

Don Barr, Director / City Assessor Assessment, Tax & Real Estate
Report prepared by: Don Barr, Director / City Assessor

Jason Carlston, Executive Director Community Planning and Development

EX14-15
April 2, 2014

To:

Members, Executive Committee Downtown Transportation Study (DTS) Phases Two and Three and Direction for Downtown Transit in Regina

Re:

RECOMMENDATION OF THE EXECUTIVE COMMITTEE - MARCH 12, 2014 1. That the Downtown Transportation Study (DTS) Phases Two and Three Report as outlined in Appendix A be APPROVED and the Administration be directed to incorporate the specific initiatives in the DTS as outlined in Appendix B into the appropriate work plans as budget and resources permit. 2. That, recognizing that 11th Avenue is a major destination for transit customers, Regina Transit buses continue to serve stops on 11th Avenue and measures be put in place to mitigate the impacts of these transit stops on businesses fronting 11th Avenue, including: Providing adequate transit stop amenities including waste receptacles and attractive shelters to reduce littering and discourage use of building entrances; Relocation of eastbound bus stops from in front of Old City Hall Mall to the block between Lorne Street and Cornwall Street, with modifications to Lorne Street to ensure appropriate turning movements can be provided; Design of a dual street transit hub that includes Lorne Street between 11th and 12th Avenues, reducing the number of transfers on 11th Avenue; Expanding existing security patrols over the entire business day on 11th Avenue between Cornwall Street and Hamilton Street; Adjusting schedules and timing points of transit routes to minimize layover time on 11th Avenue; Reviewing ridership patterns and adjusting bus route assignments to stops to reflect available sidewalk space; and, Undertaking a passenger education and awareness program to discourage loitering in private buildings and littering.

3. That $200,000 in funding be allocated from the General Fund Reserve for the enhanced security patrol, transit stop amenities, increasing transit activities on Lorne Street and the relocation of bus stops from in front of Old City Hall and that opportunities for supplemental or shared funding from Regina Downtown Business Improvement District (RDBID) and others be explored. 4. That a downtown transit shuttle service, to replace regular transit services is not feasible at this time, but that the City of Regina retain the concept as a long-term option to support redevelopment and connect the downtown with the new stadium, the Regina Revitalization Initiative (RRI), and the Warehouse District.

-25. That the recommended plan for additional cycling facilities on downtown streets as identified in the DTS be included in the City-wide Transportation Master Plan. 6. That Administration be directed to establish a Downtown Transportation Working group to provide open channels of communication to address emergent issues related to downtown transportation and that this working group include representation from RDBID, Regina Transit, City Operations, and the Accessibility Advisory Committee. 7. That strategies for the management and supply of parking in the downtown be finalized through the Downtown and Vicinity Parking Study. 8. That item MN13-4 Downtown Transit Shuttle Service be removed from the List of Outstanding Items for City Council. 9. That the Administration explore a partnership with other organizations to build a new parking structure downtown. 10. That this report be forwarded to the April 14, 2014 City Council meeting for consideration.

EXECUTIVE COMMITTEE - MARCH 12, 2014 The Committee adopted a resolution to concur in the recommendation contained in the report after adding the following recommendation. That the Administration explore a partnership with other organizations to build a new parking structure downtown.

Mayor Michael Fougere, Councillors: Sharron Bryce, Bryon Burnett, John Findura, Bob Hawkins, Terry Hincks, Wade Murray, Mike ODonnell and Barbara Young were present during consideration of this report by the Executive Committee.

The Executive Committee, at the PRIVATE session of its meeting held on March 12, 2014, considered the following report from the Administration: RECOMMENDATION 1. That the Downtown Transportation Study (DTS) Phases Two and Three Report as outlined in Appendix A be APPROVED and the Administration be directed to incorporate the specific initiatives in the DTS as outlined in Appendix B into the appropriate work plans as budget and resources permit. 2. That, recognizing that 11th Avenue is a major destination for transit customers, Regina Transit buses continue to serve stops on 11th Avenue and measures be put in place to mitigate the impacts of these transit stops on businesses fronting 11th Avenue, including: Providing adequate transit stop amenities including waste receptacles and attractive shelters to reduce littering and discourage use of building entrances;

-3Relocation of eastbound bus stops from in front of Old City Hall Mall to the block between Lorne Street and Cornwall Street, with modifications to Lorne Street to ensure appropriate turning movements can be provided; Design of a dual street transit hub that includes Lorne Street between 11th and 12th Avenues, reducing the number of transfers on 11th Avenue; Expanding existing security patrols over the entire business day on 11th Avenue between Cornwall Street and Hamilton Street; Adjusting schedules and timing points of transit routes to minimize layover time on 11th Avenue; Reviewing ridership patterns and adjusting bus route assignments to stops to reflect available sidewalk space; and, Undertaking a passenger education and awareness program to discourage loitering in private buildings and littering.

3. That $200,000 in funding be allocated from the General Fund Reserve for the enhanced security patrol, transit stop amenities, increasing transit activities on Lorne Street and the relocation of bus stops from in front of Old City Hall and that opportunities for supplemental or shared funding from Regina Downtown Business Improvement District (RDBID) and others be explored. 4. That a downtown transit shuttle service, to replace regular transit services is not feasible at this time, but that the City of Regina retain the concept as a long-term option to support redevelopment and connect the downtown with the new stadium, the Regina Revitalization Initiative (RRI), and the Warehouse District.

5. That the recommended plan for additional cycling facilities on downtown streets as identified in the DTS be included in the City-wide Transportation Master Plan. 6. That Administration be directed to establish a Downtown Transportation Working group to provide open channels of communication to address emergent issues related to downtown transportation and that this working group include representation from RDBID, Regina Transit, City Operations, and the Accessibility Advisory Committee. 7. That strategies for the management and supply of parking in the downtown be finalized through the Downtown and Vicinity Parking Study. 8. That item MN13-4 Downtown Transit Shuttle Service be removed from the List of Outstanding Items for City Council. 9. That this report be forwarded to the April 14, 2014 City Council meeting for consideration. CONCLUSION Downtown Regina is going through change. Several new developments have been completed and more are planned. While this is the sign of a successful, growing City, it comes with challenges with respect to meeting transportation demands. Since road capacity is essentially fixed, it is critical that opportunities to promote walking, cycling, transit and ride-sharing to and from the downtown be maximized. At the same time, it is important to recognize that

-4maintaining access and parking for automobiles and delivery vehicles is vital for businesses. Accordingly, the Downtown Transportation Study recommends a suite of short, medium and long term improvements to facilitate multi-modal travel options in the downtown and surrounding area. Transit is particularly critical to the downtown. On a typical weekday, over 6,000 people use transit to get to/from or around downtown, and this figure is growing. In the month of October, city-wide transit ridership had increased by 13.8% as compared to the same time last year (2012). This is after changes to routes and schedules were made in July 2013. These increases were achieved without increasing service levels but instead tailoring routes to better meet customer demands. Notwithstanding the recent successes of transit, there are still many issues that exist due to the number of buses and passengers in a small area. These include lane interruptions on 11th Avenue, sight-line issues at driveways and alleyways, crowding on sidewalks and use of private lobbies by transit passengers. Most of these impacts can be mitigated by providing adequate shelters and amenities and through further changes to the route structure to reduce the number of express buses using 11th Avenue. Various options for further reducing or eliminating buses from 11th Avenue were examined, including options involving shuttle buses. One of the major challenges with moving buses or stops off 11th Avenue is that the impacts are simply transferred to other streets. Introducing a shuttle service could facilitate the removal of some buses off 11th Avenue, but the net cost to provide this service is estimated at $550,000 annually plus start-up costs. The preferred option is to increase service on express routes and continue the transition to a multi-node system. Over time, more transfers will occur outside the downtown core and at nodes in the periphery of the city. Additionally, a future downtown transit terminal could alleviate some of the current concerns about transit. While continued service on 11th Avenue is recommended, there remains interest from adjacent businesses in relocating transit to other streets. Should transit service on 11th Avenue be relocated, additional review would be required in order to ensure the costs and impacts of the new routes and stops are appropriately identified and managed. BACKGROUND Upon the completion of the City Square Plaza, City Council directed the Administration to review options for managing traffic not just on City Square Plaza, but throughout the downtown. The Downtown Transportation Study (DTS) was initially commissioned in response to Councils direction. The study area for the DTS is shown in Appendix A. Phase One of the DTS specifically examined challenges facing all users on 11th and 12th Avenues and identified options to improve the transportation system on these corridors. It also considered the future nature of traffic access to City Square Plaza. Recommendations from Phase One of the DTS were approved by City Council on July 23, 2012 and were implemented in 2012 and 2013.

-5Phases Two and Three of the DTS considered transportation options throughout the broader downtown, including traffic movement, transit services, and cyclist and pedestrian accommodation. The Phase Two study area considered all streets as far south as 13th Avenue. Consultant efficiencies also allowed for the completion of Phase Three without additional funding, which considered all streets as far south as College Avenue. Additional work was included in the contract during the summer of 2013 to further explore options for transit operations in the downtown, including the feasibility of a shuttle service within the area. This report is located in Appendix C. All phases of the DTS, including the additional transit review, are now complete. In addition, Council instructed the Administration to review traffic operations on City Square Plaza and 11th Avenue on an annual basis. The results of that review are included in this report. DISCUSSION The DTS identified a number of issues and potential solutions for improving transportation in the downtown, which are discussed subsequently. Improvements and future studies would be done in collaboration with the City departments responsible for Traffic Operations, Open Space Management, Transit Services, Transportation Planning, Parking and Roadway Preservation. In addition, the RDBID and other stakeholders will be a part of achieving the proposed implementation plan included in Appendix B to this report. Intersection Operations The DTS included the modelling of traffic flows from Saskatchewan Drive to College Avenue and Osler Street to Angus Street. Overall, traffic volumes are acceptable within those boundaries, although individual movements may be delayed by the presence of a turning vehicle or pedestrians. Most intersections on the boundary arterial roads, however, experience capacity and delay problems, with failing movements being observed at: Saskatchewan Drive and Albert Street, eastbound left-turn movement; Saskatchewan Drive and Broad Street, all left-turn movements other than the northbound direction; 11th Avenue and Albert Street, westbound left-turn and through movements; Victoria Avenue and Broad Street, southbound left-turn movement and northbound through and right-turn movements; and, Broad Street and 13th Avenue, southbound left-turn movement.

To address these issues, the following improvements are proposed: Location Saskatchewan Drive & Albert Street Proposed Improvement Widen Saskatchewan Drive to create an additional westbound lane from Lorne Street, becoming a right turn lane at Albert Street Convert the middle southbound through-lane on Albert Street to a shared through-left turn lane becomes double left turn at peak times Extend the westbound left turn lane to McInytre Street Remove the right turn channels to improve pedestrian safety and install audible pedestrian signals Provide a shared through-left turn lane on eastbound Saskatchewan

Saskatchewan Drive

-6& Broad Street 11th Avenue & Broad Street 12th Avenue & Broad Street Roadway Alternatives There are limited opportunities to expand roadway network capacity in the downtown. Outside of peak hours, downtown roadways generally operate with free-flow conditions. Therefore, alternatives explored as part of the DTS focused on options that could improve access while contributing to more comfortable and safe environments for pedestrians and cyclists. Conversion of one-way streets to two-way operation has the potential to improve circulation and routing options, reduce out-of-way travel, and slow traffic. However, the potential for two-way streets to impact options for parking and bike routes must be considered. It is also recognized that the discussion of two-way streets is controversial given the lingering concerns about the conversions of 11th Avenue and 12th Avenue. For Phase Two, traffic modelling was undertaken to examine if there would be merit in considering the conversion of Hamilton Street and Rose Street to two-way. A scenario involving the conversion of 11th Avenue back to one-way was also examined at the request of the RDBID, but was shown to have significant negative impacts on traffic movement. Based on past studies, 13th Avenue was identified as a candidate for two-way conversion and examined as part of Phase Three. Lorne Street, Smith Street, 14th Avenue and 15th Avenue were also identified as potential candidates, but it was determined that two-way operations on these streets would preclude the extension of bike facilities and provide no significant enhancement to traffic movement. Based on the traffic modelling, it was shown that there would be little or no increases in traffic delays as a result of the conversion of 13th Avenue to two-way, but overall travel distances would decrease as a result of more direct travel routings. The following three streets are considered candidates for two-way conversion: Hamilton Street between Saskatchewan Drive and Victoria Avenue (and potentially south to College Avenue); Rose Street between Saskatchewan Drive and Victoria Avenue (and potentially south to College Avenue); and, 13th Avenue between Albert Street and Broad Street. Drive during peak times; extend existing left turn lane by ~10 metres Provide a shared through-left turn lane on southbound Broad Street during peak times Realign northbound and westbound left turns, and provide westbound left turn arrow during PM peak hour Provide a new eastbound right-turn lane Make the southbound curb extension permanent to facilitate southbound right-turn bus movements New eastbound right-turn lane plus an advanced eastbound left turn

-7Two-way conversion is recommended for 13 Avenue in the medium term, while further study of conversion is recommended for Hamilton Street and Rose Street. Prior to finalizing the decision on the feasibility and timing of these conversions, conceptual designs will need to be prepared and presented to area residents. It will also be necessary to confirm the preferred eastwest cycling route or routes through the City-wide Transportation Master Plan. The potential opening of F.W. Hill Mall to vehicular traffic and parking was also discussed with stakeholders and there was general interest in redeveloping Scarth Street between Victoria Avenue and 11th Avenue to provide for wider sidewalks and patio spaces, parking and northbound traffic circulation. This project is complex and will require a scoping study in a future budget year. Parking The DTS was integrated with the Downtown and Vicinity Parking Study to ensure both projects were compatible with respect to parking issues in the area. The Downtown and Vicinity Parking Study is nearing completion and its results will be presented to City Council in the summer of 2014. Pedestrians Pedestrians are among the key defining characteristics of Reginas downtown and the surrounding neighbourhoods. Virtually all trips in downtown Regina include a pedestrian component, connecting destinations to transit stops, parkades, and other destinations. Recent and planned growth in residential population in the vicinity of downtown will also increase pedestrian trips. Providing walkable and pedestrian-oriented environments is essential to downtown Regina, as reinforced in the title of the Downtown Neighbourhood Plan, Walk to Work. The F.W. Hill Mall on Scarth Street and City Square Plaza both represent attempts to increase the pedestrian priority downtown. Improvements in recent years, such as the rebuilding of sidewalks on Albert Street and Lorne Street, are providing examples of how the downtowns pedestrian environments can be improved. However, many of the challenges relating to pedestrians and walkability downtown are smaller in scale and the Downtown Transportation Study identifies some of these emergent issues, including: Built condition of sidewalks throughout most of the downtown, including deterioration and uneven surfaces; Winter maintenance and inconsistent snow clearing of sidewalks; Outdated accessibility standards, particularly for curb ramp designs; Difficulty of crossing and safety along major arterials that border the downtown, particularly Saskatchewan Drive, Albert Street, and Broad Street; Conditions through the Albert Street and Broad Street underpasses; Minimal streetscaping and weather protection; and, Lack of wayfinding and awareness of walking distances in downtown.
th

Key measures in the DTS related to pedestrians and walkability include:

-8Identifying 11th Avenue, Victoria Avenue, and Cornwall Street as key pedestrian corridors in downtown on which to prioritize streetscape improvements, greening and other pedestrian amenities; Improving pedestrian environments along arterial streets such as Albert Street and Broad Street through sidewalk reconstruction, creation of boulevards where space permits to serve as buffers, and improved intersection and crosswalk treatments; Reconstructing and extending the sidewalk on the north side of Saskatchewan Drive to provide a continuous walkway between Albert Street and Broad Street and improving pedestrian crossing opportunities at the Cornwall Centre Parkade access and other locations on this street; Installing a curb extension and high visibility crosswalk at the intersection of Victoria Avenue and Cornwall Street; Addressing conditions under Albert Street and Broad Street underpasses through improved lighting, widening where possible, and potential integration of public art; Adopting a new standard for accessible sidewalk design and curb ramps with consultation with accessibility groups; Improving snow clearing on sidewalks under city jurisdiction and increasing enforcement on private properties, exploring implementation of municipal snow clearance on sidewalks within the downtown; Continuing to install pedestrian countdown signals and accessible pedestrian signals throughout the downtown; Developing a pedestrian signage and wayfinding strategy for downtown and surrounding areas; Adopting a standard design for tree pits and plantings with guidance on alternative plantings or streetscaping where tree growth conditions are not optimal; and, Dedicating additional funding and resources to sidewalk maintenance.

Cycling Phase Two of the DTS also looked at how to improve conditions to support cycling in the downtown for both commuter and recreational travel. Utility cycling cycling to travel from point A to point B is increasing in urban areas around the country, even in cities with harsh winter climates. The potential for cycling in Regina is significant, particularly to the downtown, where most of the city is within a 30-minute bike ride, which is competitive with driving times in peak periods. Making cycling safer and more attractive can significantly increase cycling mode share. Several barriers to cycling in Regina were identified through the DTS and parallel activities in the Transportation Master Plan: Lack of cycling infrastructure to provide safe routes for cycling, particularly on-street bike lanes; Conditions for cycling within the Albert and Broad Street underpasses; Minimal provision of short and long-term bicycle parking in the downtown; and, Lack of awareness of how cycling and other road users co-exist on roadways.

Creating the conditions to encourage cycling can be a cost-effective means to improve access to downtown Regina. Cycling commuters are also more likely to use transit, own fewer cars, and have reduced transportation costs. The key measures recommended as part of the DTS related to cycling include:

-9Extension of existing Lorne Street bike lane from Victoria Avenue to 11th Avenue; Implementation of a 12th Avenue bikeway to provide east-west connectivity through downtown Regina and to adjacent neighbourhoods; Exploring potential of an east-west bikeway between Victoria Avenue and College Avenue using 14th Avenue and 15th Avenue as one-way bicycle couplets; Improving signage for cyclists and pedestrians on the shared walkway at the Broad Street underpass; Implementing signage and road marking improvements at the intersections of Broad Street with Dewdney Avenue and Saskatchewan Drive to direct cyclists to the shared walkway; Expanding on-street short-term bicycle parking throughout downtown focused at major destinations and along retail streets; Expanding and increasing awareness of off-street long-term bicycle parking options within parkades and integrated within development; Encouraging end-of-trip bicycle facilities, such as change and locker rooms, in new developments; and, Developing awareness and education programs for all road users to promote safe cycling throughout the city and to downtown.

Transit Transit is critical to the downtown. On a typical weekday, over 6,000 people utilize transit to get to, from and around downtown and this figure is growing. In the month of October, city-wide transit ridership had increased by 13.8% as compared to the same time last year (2012). This is after changes to routes and schedules were made in July 2013. These increases were achieved without increasing service levels but instead tailoring routes to customer demands. A side benefit of the recent changes to the transit system has been the reduction of peak hour bus volumes on 11th Avenue by 17%. The bus stops on 11th Avenue at Cornwall Centre continue to be the busiest in the city and half of the passenger boarding activity is not from transfer activity, but workers, residents, and shoppers from nearby destinations. Notwithstanding the recent successes of transit, there are still many issues that exist due to the number of buses and passengers in a small area. 11th Avenue is a constrained corridor with the need for multiple uses to co-exist, including businesses, pedestrian, transit vehicles and customers, automobile traffic, and deliveries. Some of the issues related to transit include: Lane interruptions on 11th Avenue; Concerns regarding idling buses; Sight-line issues at driveways and alleyways; Crowding on sidewalks; Littering; Safety and security concerns; and, Use of private building entrances by transit passengers.

Various options for further reducing or eliminating buses from 11th Avenue were examined, including routing options on Victoria Avenue, Lorne Street, and Saskatchewan Drive, as well as the elimination of full-sized buses from within the downtown in favour of a shuttle service. Other locations for the transfer nodes were also examined. One of the major challenges with moving buses or stops off 11th Avenue is that the traffic and business impacts are simply transferred to other streets. Full relocation of operations to boundary streets or to north-south

- 10 streets within the downtown would also require structural improvements, changes to traffic controls and signals, and rescheduling of transit routes and stops. The following table provides information on the results of this review.
Alternative 1: 11th Avenue (existing) Alternative 2: New Transit Corridor on Lorne Street and Victoria Avenue GOOD Accommodated at intersection of 11th Avenue and Lorne Street GOOD Increases service to south end of downtown with added service on Victoria Avenue FAIR Routes split between two corridors, but on same corridor in both directions GOOD Greater capacity to handle service increases with two corridors FAIR Available capacity on Lorne Street but increased congestion on Victoria Avenue FAIR Increased transit travel time versus 11th Avenue FAIR Fewer businesses impacted on Lorne Street; concerns on Victoria Avenue Alternative 3: Eastbound on Saskatchewan Drive, Westbound on 11th Avenue POOR No central location, customers must walk from Sask. Drive to 11th Ave. POOR Increases walking distance to EB transit from south end of downtown FAIR All EB on Sask. Drive, all WB on 11th avenue FAIR May require additional priority due to congestion (all-day bus lanes) POOR Saskatchewan Drive experiences high levels of congestion Alternative 4: Transit Shuttle Service

Transfers Between Routes

GOOD Accommodated on 11th Avenue at Cornwall Street GOOD Most downtown locations well served

Proximity to Destinations

POOR No central location, customers must walk or transfer to shuttle GOOD Most downtown locations well served

Route/System Understandability

GOOD All routes service same corridor in both directions FAIR May require additional priority (all-day bus lanes) FAIR Congestion at intersections is of short duration

POOR Increased complexity for riders FAIR Shuttles must contend with growing traffic within the downtown FAIR Congestion on arterial streets

Ability to accommodate future growth in service

Traffic impacts

Transit delay

GOOD Transit operations served well POOR Challenges with access, transit patrons in private buildings on important retail street

Business and property impacts

POOR High volumes on Saskatchewan Drive create delay FAIR Businesses on north side of 11th Avenue impacted; loading areas on Saskatchewan Drive impacted

POOR Shuttles navigate circuitously through downtown resulting POOR Impacts on businesses on arterial roads and at many shuttle stop locations

The transit shuttle option explored at the direction of City Council warrants further consideration. This option involves the introduction of a free downtown shuttle service to replace bus services on 11th Avenue. At this time, it is not recommended for the following reasons: It would increase bus volumes on Victoria Avenue and Saskatchewan Drive and additional turning movements would exacerbate congestion at major intersections on Albert and Broad Streets;

- 11 It requires the removal of multiple on-street parking stalls on all blocks where the shuttle service stops; The relative walking distance and time, compared to travel time on the shuttle, makes the service unattractive to transit customers; and, Operating costs for a service operating every five minutes during peak times is estimated at approximately $550,000 per year, with start-up capital costs ranging from $665,000 to $3.6 million.

A downtown shuttle service is not recommended at this time, particularly as a means to replace regular transit service on 11th Avenue. A circulator shuttle to complement existing transit services may be desirable in the future to connect the downtown with the RRI and the Warehouse District. Full or partial private sponsorship of the shuttle service may be an option should it prove feasible for transit and traffic operations in the future. Based on the results of the review and observed ridership patterns and transit customer preference, it is recommended that transit service on 11th Avenue be maintained for the time being. It is recognized, however, that the concerns raised on 11th Avenue must be addressed. It is recommended that the following mitigating measures be implemented immediately: Providing adequate transit stop amenities including waste receptacles and attractive shelters to reduce littering and discourage use of building entrances; Relocation of eastbound bus stops from in front of Old City Hall Mall to the block between Lorne Street and Cornwall Street, with modifications to Lorne Street to ensure appropriate turning movements can be provided; Relocating some transfers from 11th Avenue to Lorne Street and exploring the role the Cityowned lot at the corner of 11th Avenue and Lorne Street could play in the transit system; Expanding existing security patrols over the entire business day on 11th Avenue between Cornwall Street and Hamilton Street; Adjusting schedules and timing points of transit routes to minimize layover time on 11th Avenue; Reviewing ridership patterns and adjusting bus route assignments to stops to reflect available sidewalk space; and, Undertaking a passenger education and awareness program to discourage loitering in private buildings and littering.

Regina Transit plans to continue implementation of its Transit Investment Plan, which, with further investment in transit, will increase service on express routes and continue the transition to a multi-node system as identified as part of the city-wide Transportation Master Plan. Over time, more transfers will occur outside the downtown core and at nodes in the periphery of the city. It is also recommended that the City pursue the development of a downtown transit terminal for implementation in the medium to long term. The Downtown Transportation Study determined that the existing City-owned property on the southwest corner of Lorne Street and 11th Avenue is not appropriate for an off-street terminal due to the size of the parcel and impacts of buses turning movements on traffic flow and pedestrian safety on 11th Avenue. This conclusion could change if additional property could be acquired. A feasibility study would be more appropriate to identify opportunities for partnerships with new development or potential sites for acquisition.

- 12 Universal Design and Accessibility Key overarching strategies under the section on pedestrians include creating an attractive pedestrian environment, and improving sidewalk maintenance. Each of these strategies includes a number of actions that will serve to improve accessibility. Key actions include adopting a new standard for accessible sidewalk design, including the requirement for even and level walking surfaces, level sidewalks at driveways/alleyways, and adopting a new standard for accessible cross-walk design. Reviewing, updating and adopting these new standards is identified as a priority by the Accessibility Advisory Committee. In addition, the plan recommends the continued installation of pedestrian count-down signals and audible signals as covered by existing programs. Maintaining transit on 11th Avenue is also important to minimize walking distances for people with mobility challenges. Other Considerations There are many on-going initiatives in the City which will have an impact on downtown transportation including the Regina Revitalization Initiative, the Transportation Master Plan, the Downtown and Vicinity Parking Study and downtown development in general. The DTS provides an overall framework and recommendations to improve transportation in the downtown while contributing to broader City-building objectives. It should be reviewed and updated regularly to account for changing conditions. Review of Phase One Results As part of the approval of Phase One of the DTS, City Council directed the Administration to review traffic operations on City Square Plaza and 11th Avenue on an annual basis. That review was recently completed with the following results: Traffic operations on the plaza are generally working well. Volumes and speeds appear to be low and drivers are yielding to pedestrians and other active users; Some drivers still appear to be confused about how to turn at Cornwall Street. Additional bollards have been added to help with traffic guidance; A total of six Requests for Service (RFS) were received since the plaza was opened relating to traffic operations and drivers not following roadway guidelines. There have been a few safety problems associated with the introduction of traffic to the plaza. Regina Police Service notes two reported incidents since the plaza was opened, both of which were minor in nature. One involved only property damage and a second involved a pedestrian jumping into traffic and being struck by a vehicle resulting in minor injuries; and, Increased traffic in the downtown and changes to transit operations necessitated a review of traffic operations on 11th Avenue. As a result of this review, modifications to traffic and parking restrictions will be made to permit vehicles to utilized the curb lanes during peak hours, thereby avoiding back-ups due to left turning vehicles in the inside lanes. Eastbound left turn arrows at the intersections of 11th Avenue and Hamilton Street, Cornwall Street and Smith Street have also been added.

- 13 RECOMMENDATION IMPLICATIONS Financial Implications The cost of implementing all of the proposed improvements recommended in this report and listed in the implementation plan in Appendix B is estimated at $8,005,000 in todays dollars. Funding of these projects will be subject to the capital budget approval process. Currently, projects in the downtown are only eligible for limited funding through servicing agreement fees (SAF), with utility and general capital budgets funding most of the cost of improvements. SAF are also not charged in the area. The recently approved Official Community Plan included significant intensification in the centre of the City. This approach to growth, along with the recently completed Downtown Serviceability Study and DTS, will be inputs into a comprehensive review of development charges the Administration will be undertaking in 2014. The review is expected to provide funding options to support the redevelopment of existing areas of the City, including its downtown. Environmental Implications The DTS identifies improvements to encourage greater use of walking, cycling and transit modes for travel to and from the downtown. This will reduce the amount of fuel consumed for transportation and in turn, assist in reducing the Citys carbon footprint. Policy and/or Strategic Implications The overall strategy to maximize the capacity of the existing road network while planning for an increased role for public transit supports the goals of the Official Community Plan and the Downtown Neighbourhood Plan. In particular, the measures identified in the DTS support the community priority to create better, more active ways of getting around. Some of the policies and actions in the DTS, in particular those related to walking and cycling improvements, will need to be confirmed, expanded on and incorporated into the City-wide Transportation Master Plan which is on-going and expected to be completed in early 2014. Other Implications The traffic, transit and streetscaping improvements identified in the DTS for 11th Avenue can be incorporated within the existing streetscape with minimal disruption to traffic. However, 11th Avenue will most likely require a full re-build from building face to building face within the next 10 years. This will have impacts on traffic flow within the downtown and will require significant advance planning.

- 14 Accessibility Implications Since accessibility is an overarching goal to be achieved in all aspects of transportation planning, Phase Two of the DTS integrates recommendations to improve universal accessibility and design into the recommendations for each mode. The recommendations are designed to improve accessibility throughout the downtown. Specific recommendations to develop new standards for accessible sidewalks and cross-walks will require input from the Accessibility Advisory Committee and numerous departments. COMMUNICATIONS Phase One of the DTS included three public open houses and meetings with stakeholders including RDBID, emergency service providers, transit officials, management at Cornwall Centre, the owners and tenants of buildings adjacent to City Square Plaza, the Accessibility Advisory Committee, the blind and low vision community, and the Regina Chamber of Commerce. Phase Two and Phase Three consultation consisted of meetings with specific stakeholder groups. A meeting and walk-about was held with the blind and low vision community representatives on September 13, 2012 prior to the opening of City Square Plaza to traffic. This meeting was useful in identifying challenges beyond the Plaza. One of the requests from the representatives at this meeting was to be given more advance notice of changes in streetscape or traffic control in the downtown prior to implementation. Three meetings were held with members of RDBID throughout Phase Two and Three. The first meeting, held on March 15, 2013 included a presentation on transit routing alternatives. During this meeting representatives expressed a desire to look at options to reduce the number of buses on 11th Avenue, but also recognized the importance of transit to the downtown. A second meeting was held on June 26, 2013 to discuss options to consolidate stops on 11th Avenue as part of the transit route restructuring plan. During this meeting concerns were raised by specific property owners about the location of bus stops and the impacts of waiting passengers. A third meeting was held on August 26, 2013 to present interim findings on the transit shuttle feasibility study, including reviews of experiences in other cities. Concerns around bus stops and transfer points on 11th Avenue were further articulated at this meeting. An additional meeting was held with RDBID on February 28, 2014 to share the results of the study. At this meeting, RDBID expressed general support for the findings, especially moving more transit activities west on 11th Avenue and onto Lorne Street. The DTS was also guided by a Steering Committee and Technical Team. The Steering Committee include representation from RDBID, who in turn, provided study updates to members through regular communications.

- 15 DELEGATED AUTHORITY This report will require City Council approval. Respectfully submitted, EXECUTIVE COMMITTEE

Erna Hall, A/Secretary

Final Report

Regina Downtown Transportation Study

Submitted to City of Regina February 2014

This page intentionally left blank for double sided printing.

IBI GROUP REGINA DOW NTOWN TRANSPORTATION STUDY PHASE TW O AND THREE REPORT: DIRECTIONS FOR DOW NTOW N TRANSPORTATION Prepared for City of Regina

Table of Contents
1 Introduction ......................................................................................................................... 1 1.1 1.2 2 Study Objectives ...................................................................................................... 2 Report Overview ...................................................................................................... 3

Key Issues and Future Conditions ................................................................................... 4 2.1 2.2 2.3 Key Issues from Phase One .................................................................................... 4 Downtown Neighbourhood Plan Needs................................................................... 5 Future Conditions..................................................................................................... 6

Downtown Transportation Directions .............................................................................. 9 3.1 3.2 Design Regina and the Transportation Master Plan................................................ 9 Downtown Transportation Directions:...................................................................... 9

Transit ................................................................................................................................ 11 4.1 4.2 4.3 Existing Conditions ................................................................................................ 11 Key Strategies for Transit ...................................................................................... 12 Action Plan ............................................................................................................. 15

Pedestrians ....................................................................................................................... 16 5.1 5.2 5.3 Existing Conditions ................................................................................................ 16 Key Strategies........................................................................................................ 18 Action Plan ............................................................................................................. 27

Cycling ............................................................................................................................... 28 6.1 6.2 6.3 Existing Conditions ................................................................................................ 28 Key Strategies........................................................................................................ 29 Action Plan ............................................................................................................. 35

Traffic and Roads ............................................................................................................. 36 7.1 7.2 7.3 Existing Conditions ................................................................................................ 36 Key Strategies........................................................................................................ 36 Action Plan ............................................................................................................. 41

FEBRUARY 2014

IBI GROUP REGINA DOW NTOWN TRANSPORTATION STUDY PHASE TW O AND THREE REPORT: DIRECTIONS FOR DOW NTOW N TRANSPORTATION Prepared for City of Regina

Table of Contents (continued)

8 Parking and Loading ........................................................................................................ 42 8.1 9 Existing Conditions ................................................................................................ 42

Implementation and Costing ........................................................................................... 44

LIST OF EXHIBITS Exhibit 1.1: Study Area ................................................................................................................... 2 Exhibit 2.1: Recent and proposed developments ........................................................................... 7 Exhibit 2.2: Approaches to allocating road space........................................................................... 8 Exhibit 4.1: Summary actions for transit improvements................................................................ 15 Exhibit 5.1: Broad Street underpass conditions for pedestrians................................................... 16 Exhibit 5.2: Narrow sidewalk at arterial intersection and along arterial roadway ......................... 17 Exhibit 5.3: Examples of sidewalk degradation in downtown Regina........................................... 17 Exhibit 5.4: Current curb ramp design .......................................................................................... 18 Exhibit 5.5: Example streetscape enhancements suitable for narrow sidewalks (e.g., 11th Avenue).................................................................................................................. 19 Exhibit 5.6: Accessible curb ramp design (Source: Federal Highway Administration) ................. 20 Exhibit 5.7: Pedestrian count-down light....................................................................................... 21 Exhibit 5.8: Priority intersections for audible pedestrian signal installation .................................. 22 Exhibit 5.9: High visibility crosswalk.............................................................................................. 23 Exhibit 5.10: Curb extension ......................................................................................................... 23 Exhibit 5.11: Examples of way-finding pillars................................................................................ 25 Exhibit 5.12: Example of pedestrian-oriented signage ................................................................. 26 Exhibit 5.13: Rendering of pedestrian-oriented street signage for Regina ................................... 26 Exhibit 5.14: Summary actions for pedestrian improvements ...................................................... 27 Exhibit 6.1: Broad Street underpass allowing cyclists to ride on the sidewalk ............................. 29 Exhibit 6.2: Example section of Lorne Street looking north, between Victoria Avenue and th 11 Avenue ............................................................................................................ 30 Exhibit 6.3: Example section of 12th Avenue looking east, between Hamilton Street and Rose Street ............................................................................................................ 31 Exhibit 6.4: Examples of on-street bike racks............................................................................... 32

FEBRUARY 2014

IBI GROUP REGINA DOW NTOWN TRANSPORTATION STUDY PHASE TW O AND THREE REPORT: DIRECTIONS FOR DOW NTOW N TRANSPORTATION Prepared for City of Regina

Table of Contents (continued)

Exhibit 6.5: Public display bicycle traffic counter .......................................................................... 34 Exhibit 6.6: Summary actions for cycling improvements .............................................................. 35 Exhibit 7.1: Recommended improvements at the intersection of Albert Street and Saskatchewan Drive .............................................................................................. 37 Exhibit 7.2: Recommended improvements at the intersection of Broad Street and Saskatchewan Drive .............................................................................................. 38 Exhibit 7.3: Recommended improvements at the intersection of Broad Street and 11 Avenue ................................................................................................................... 39 Exhibit 7.4: Summary actions for traffic improvements................................................................. 41 Exhibit 9.1: Recommended Actions and Costs............................................................................ 44
th

LIST OF APPENDICES Appendix A: Directions for Transit in Downtown Regina

FEBRUARY 2014

IBI GROUP REGINA DOW NTOWN TRANSPORTATION STUDY PHASE TW O AND THREE REPORT: DIRECTIONS FOR DOW NTOW N TRANSPORTATION Prepared for City of Regina

Introduction

The Downtown Transportation Study (DTS) was initiated by the City of Regina in November 2011 to analyze and propose alternatives to a number of transportation issues in Reginas downtown (see Exhibit 1.1). The study was completed in three phases as follows: Phase One focused on operations of 11th Avenue and 12th Avenue through downtown Regina, including providing a preferred operational plan for City Square Plaza; Phase Two expanded the study area north to Saskatchewan Drive, south to 13th Avenue, west to Angus Street, and east to Osler Street, addressing transportation issues for all modes and providing recommendations for transportation policy and operational changes; and, Phase Three expanded the study area to the entire downtown, southward to College Avenue.

This report presents the findings and recommendations from Phase Two and Three of the Downtown Transportation Study. A brief summary of the key issues from Phase One is also provided.

FEBRUARY 2014

IBI GROUP REGINA DOW NTOWN TRANSPORTATION STUDY PHASE TW O AND THREE REPORT: DIRECTIONS FOR DOW NTOW N TRANSPORTATION Prepared for City of Regina

Exhibit 1.1: Study Area

1.1

Study Objectives

The Downtown Transportation Study is an opportunity to assess Reginas transportation system and improve the way the city travels to, from, and within its downtown. An efficient transportation network is a key to the downtowns existing and future vitality and growth.

FEBRUARY 2014

IBI GROUP REGINA DOW NTOWN TRANSPORTATION STUDY PHASE TW O AND THREE REPORT: DIRECTIONS FOR DOW NTOW N TRANSPORTATION Prepared for City of Regina

The overall objective of the Study is to identify and evaluate options to improve conditions for all users including pedestrians, cyclists, transit riders, automobiles and delivery vehicles. Phase One of the DTS examined the key operational challenges and opportunities for the 11th and 12th Avenue corridors and whether or not to make the closure to vehicles on City Square plaza permanent. Many of the short term recommendations from the Phase One study have now been implemented, including the opening of City Square Plaza to westbound traffic. Phase Two and Three are intended to expand on the work completed in Phase One and reach a consensus that will best achieve the vision laid out in the Downtown Neighbourhood Planthat is: a seamless, supportive transportation network that benefits all modes. Phase Two and Phase Three also included the expansion of the downtown traffic models and subsequent use of these models to test different network scenarios. The analysis related to the expansion of these models is documented in a separate technical background report. Recommendations from Phase Two and Three address issues related to transit, mitigating downtown-wide traffic issues, and identifying improvements for pedestrians and cyclists. During the completion of the Phase Two and Three studies, additional work was requested to further explore options for transit operations in the Downtown, including evaluating the feasibility of a shuttle service within the area. This analysis is presented as part of the Directions for Transit in Downtown Regina report in Appendix A.

1.2

Report Overview

The body of this report provides high level findings, analysis, and a package of recommended traffic, transit, cycling, and pedestrian measures for the downtown. Detailed and technical analyses are attached as appendices to this report. Section 1: Introduction provides an overview of the study and study area; Section 2: Key Issues and Future Conditions summarizes findings from Phase One of the DTS and future conditions that may impact transportation in the downtown; Section 3: Downtown Transportation Directions presents overarching transportation directions for the downtown based on past city plans (Downtown Neighbourhood Plan, Official Community Plan, Transportation Master Plan); Sections 4-8 provide an overview of existing conditions and present action plans to address issues related to each mode/issue of transportation including: Transit (Section 4), Pedestrians (Section 5), Cycling (Section 6), Traffic and Road (Section 7) and Parking and Loading (Section 8); Section 9: Implementation and Costing provides estimated costing of the identified strategies and actions.

FEBRUARY 2014

IBI GROUP REGINA DOW NTOWN TRANSPORTATION STUDY PHASE TW O AND THREE REPORT: DIRECTIONS FOR DOW NTOW N TRANSPORTATION Prepared for City of Regina

2
2.1

Key Issues and Future Conditions

Key Issues from Phase One

Phase One of the Downtown Transportation Study identified a number of issues impacting all th modes of transportation in the downtown with those issues relating to City Square Plaza and 11 Avenue, the focus of the Phase One report. The work completed in Phase One provided direction for Phase Two. The following issues were identified to be addressed in Phase Two, and are discussed in more detail in later sections of this report. Traffic: Transit: Cycling: Lack of on-street, short-term bike parking Cyclists using sidewalks on 11 Avenue
th th

Congestion and delay at 12 Avenue and Albert Street Congestion and delay along 11 Avenue due to high bus volumes, vehicle turning movements from shared lanes, and illegal parking during rush hour periods Congestion and delay at the intersection of11 Avenue and Broad Street At 11 Avenue and Scarth Street, operations hindered by no-parking violators and pickup/drop-off activity At 11 Avenue and Cornwall Street, high pedestrian and traffic volumes and poor operations
th th th th

Buses delayed by illegally stopped vehicles in bus lanes in peak periods Buses delayed/slowed by movements around on-street parking and loading in off-peak periods Delayed turning movements at Broad Street and Albert Street Lack of space for transit boarding and exiting on 11 Avenue, and in turn issues relating to waiting passengers and buses blocking alleys and driveways Desire for a central hub for transit in downtown Saskatchewan Drive and Victoria Avenue underutilized as transit corridor Lack of amenities for transit riders and visibility of bus stops
th th

Walking: Canyon effect on 11 Avenue not ideal for pedestrians noise, wind tunnel, lack of light Streetscape on several streets lacks visual interest and is dated Lack of street furniture Lack of wayfinding system Inadequate number of audible pedestrian signals Inconsistent/outdated design of curb ramps throughout downtown Regina Poor condition of sidewalks and road surfaces with negative impact on accessibility

FEBRUARY 2014

IBI GROUP REGINA DOW NTOWN TRANSPORTATION STUDY PHASE TW O AND THREE REPORT: DIRECTIONS FOR DOW NTOW N TRANSPORTATION Prepared for City of Regina

Gap in north-south bikeway linkages from Lorne and Smith Streets Lack of east-west bikeway facility

Parking and Loading Perceived lack of both on-street and off-street parking in downtown Regina Lack of loading area for numerous downtown businesses and challenges with the use of alleys for loading Low awareness of parking choices and options throughout downtown area On-street parking seen as important for local businesses Low cost of on-street parking encouraging long term stays Inadequate enforcement and low fines relating to on-street parking abuse

2.2

Downtown Neighbourhood Plan Needs

The need to improve transportation conditions for downtown users has been identified in a number of key planning documents for the City of Regina. In 2009, the City developed the Official Walk to Work Downtown Neighbourhood Plan. The plan recommends increasing downtown population and employment to support a vibrant downtown and provides both a built form and public realm design framework. Improving and promoting active transportation (walking cycling and rolling) is a foundation for both of these frameworks. Three of the Eight Big Moves presented in the plan relate to active transportation: Pedestrians First: All streets designed for walking A Cycling Culture: Cultivate and support cycling as a viable means to move about Exceptional Public Transit: A downtown that is best accessed by public transit

The plan also presents several key recommendations that impact transportation to, from, and within the downtown: T1: Study the cost and impact of converting all one-way east-west roadways to two-way streets both in downtown and immediately south of downtown T2: Create alternative road standards: includes establishing an interdisciplinary team to create alternative road standards, focusing additional resources on downtown street tree care and maintenance, and embedding alternative downtown road design standards into engineering planning policies T3: Refocus transportation planning on pedestrians: includes setting new standards for downtown sidewalk materials and surfaces, updating street maintenance policies to ensure downtown has the highest material and aesthetic standard in the city, providing wider sidewalks, improving visibility of crosswalks, minimizing crossing distances, shortening wait times for pedestrians crossing arterials, and improving underpass conditions T4: Prioritize cycling within transportation planning: includes providing a high level of access to downtown for commuter cyclists, updating the cycling network and integrating it into city-wide transportation plans, promoting identifiable roadways for cycling, and providing readily available bike facilities (parking, lockers, showers) T5: Prioritize and enable the efficient operation of public transit: includes improving transit times to and through downtown, studying the feasibility of an off-street bus transfer location, and considering locating a transit hub downtown

FEBRUARY 2014

IBI GROUP REGINA DOW NTOWN TRANSPORTATION STUDY PHASE TW O AND THREE REPORT: DIRECTIONS FOR DOW NTOW N TRANSPORTATION Prepared for City of Regina

T6: Minimize, mitigate and control surface parking downtown: includes conducting a comprehensive study of downtown parking, reserving a portion of parking revenues, amending parking requirements in the Zoning Bylaw, and considering the viability of implementing a parking authority C6: Create a signage and wayfinding strategy: includes creating a signage and wayfinding strategy with pedestrian context maps, well designed street signage and signage to orient tourists to key destinations N11: Revise the Winter Maintenance Policy to prioritize the downtown: includes reviewing the existing policy to identify opportunities to prioritize service downtown These recommendations present a comprehensive vision for the future of downtown Regina and a number of projects have either been started or are in the process of being addressed as part of the Citys Official Community Plan and the corresponding Transportation Master Plan. Others are discussed more fully in this report.

2.3

Future Conditions

Downtown Regina is growing with a number of new residential and office buildings contributing to an increase in people moving into and out of the city centre. In addition to a recently th completed office development on the corner of Hamilton Street and 12 Avenue, a number of other developments are currently underway including an office development on the 1800 block of Hamilton Street and residential developments on the 2000 block of Rose Street and 2300 block of Broad Street. Proposed projects include a residential and hotel development on the corner of Albert Street and Victoria Avenue and an office building on the 1800 block of Rose Street (Exhibit 2.1). Developments in adjacent neighbourhoods, including those associated with the Regina Revitalization Initiative, will also increase residential and employment spaces north and northwest of the downtown neighbourhood over the next 10-15 years. The Citys Official Community Plan has also identified the downtown and surrounding neighbourhoods as areas for continued intensification and population growth. The Citys Growth Plan projects a population increase to 300,000 in the next 25 years. This Plan directs that at least 10,000 additional people will live within the City Centre, 5,000 of which will be accommodated within the downtown. The City Centre will continue to have the highest population and employment densities as neighbourhoods and transit corridors adjacent to downtown have been identified as areas for intensification. In addition to an increased residential population, OCP policies ensure the downtown will also continue to function as the citys primary business centre over the next 25 years, stipulating that at least 80% of total office floor area in medium and major office developments be located within the downtown. To accommodate population and employment intensification, the Transportation Master Plan has identified opportunities to create express transit corridors that pass through downtown. The growing residential population and new office and retail developments mean a greater flux of people travelling to, from, and within downtown. Without a well-designed transportation plan that focuses on multi-modal transportation planning, traffic levels and congestion on downtown streets will become worse. Since the road capacity is essentially fixed, it becomes more important to find opportunities and develop strategies that will move people in more efficient and sustainable ways (walking, cycling, transit, rideshare). Transit in particular is a key component to increase the person-carrying capacity of the current transportation network. Additionally, increasing pedestrian and cycling mode shares within the downtown will help to reduce the number of vehicles on the road. By taking a multi-modal approach to transportation planning in the downtown, with a view to improving the quality of the public realm and increasing efficient use of existing space, the increasing residential and employment population over the next 10-20

FEBRUARY 2014

IBI GROUP REGINA DOW NTOWN TRANSPORTATION STUDY PHASE TW O AND THREE REPORT: DIRECTIONS FOR DOW NTOW N TRANSPORTATION Prepared for City of Regina

years can be accommodated. Exhibit 2.2 provides a good illustration of how important it is to find ways to maximize the use of road space by getting more people walking, cycling or on transit.

Exhibit 2.1: Recent and proposed developments

FEBRUARY 2014

IBI GROUP REGINA DOW NTOWN TRANSPORTATION STUDY PHASE TW O AND THREE REPORT: DIRECTIONS FOR DOW NTOW N TRANSPORTATION Prepared for City of Regina

Exhibit 2.2: Approaches to allocating road space

FEBRUARY 2014

IBI GROUP REGINA DOW NTOWN TRANSPORTATION STUDY PHASE TW O AND THREE REPORT: DIRECTIONS FOR DOW NTOW N TRANSPORTATION Prepared for City of Regina

3
3.1

Downtown Transportation Directions

Design Regina and the Transportation Master Plan

As part of the Design Regina Official Community Plan (OCP), community priorities were developed during the community consultation process. Of these priorities, opportunities for improving transportation were highlighted as follows: Create better, more active ways of getting around: Make it easier for people of all abilities to travel by investing in public transit in appropriate locations and planning for all active forms of transportation. This includes providing access routes so all people can more easily travel from home to work and to other destinations.

The Citys Transportation Master Plan, which is being developed in conjunction with the OCP, is grounded through seven transportation directions. These directions were developed in consultation with the community: Offer a range of transportation choices for all Integrate transportation and land use planning Elevate the role of public transit Promote active transportation for healthier communities Optimize road network capacity Invest in an affordable and durable system Support a prosperous Regina and region

3.2

Downtown Transportation Directions:

The city-wide directions and priorities presented in the Official Community Plan and the Transportation Master Plan can be supported within the downtown neighbourhood by focusing on creating a more efficient transportation network and improving street design to support all modes of transportation. The following transportation directions have been identified to support the city-wide directions as well as the vision of the Downtown Neighbourhood Plan: 1) Make walking the easiest and most enjoyable way to get around downtown Regina Pedestrians are among the key defining characteristics of Reginas downtown and the surrounding neighbourhoods. Providing walkable and pedestrian-oriented environments is essential to creating a vibrant and welcoming downtown. Walking will be supported and promoted as an integral mode for day-to-day travel within downtown Regina. 2) Prioritize efficient transit access to and from downtown Regina The transit system connects all Regina neighbourhoods to the Downtown and is a key component to increasing the person-carrying capacity of the transportation network. Ensuring that transit access to, from, and through the downtown is efficient will allow more residents to access the downtown for work and recreation.

3) Foster a culture of cycling to get to, from, and around the downtown The potential for cycling in downtown Regina is significant. Making cycling safer and more attractive can significantly increase the number of people who choose to cycle

FEBRUARY 2014

IBI GROUP REGINA DOW NTOWN TRANSPORTATION STUDY PHASE TW O AND THREE REPORT: DIRECTIONS FOR DOW NTOW N TRANSPORTATION Prepared for City of Regina

to, from, and within the downtown. Dedicated bikeways will allow commuters to safely bike to work and will support recreational cycling to access central destinations.

4) Maximize the use of the existing road capacity to support continued growth in the downtown The road network in downtown Regina is essentially fixed. Optimizing the use of the existing road network will support business and residential development in the downtown. Addressing bottlenecks and congestion will help to support efficient movement to and from the downtown.

5) Manage the downtown parking supply to balance the needs of a growing downtown with other objectives presented in this report Maintaining access to parking for automobiles and delivery vehicles is important for businesses in downtown Regina. Through the Downtown and Vicinity Parking Study, the parking supply will be managed to best support both short- and long-term visitors to downtown.

FEBRUARY 2014

10

IBI GROUP REGINA DOW NTOWN TRANSPORTATION STUDY PHASE TW O AND THREE REPORT: DIRECTIONS FOR DOW NTOW N TRANSPORTATION Prepared for City of Regina

4
4.1

Transit
Existing Conditions
th

The Citys transit system includes a total of 20 transit routes, 13 of which travel along 11 Avenue in downtown Regina, the key node in the transit network. This system allows for transfer-free transit to and from the downtown from most Regina neighbourhoods. In this way, transit is critical to the downtown. On a typical weekday, over 6,000 people utilize transit to get to/from or around downtown Regina, and this figure is growing. In the month of September, citywide transit ridership had increased by 13.8% as compared to the same time last year (2012). This is after changes to routes and schedules were made in July 2013 and is exclusive of the Free Transit Fridays promotion during the month of September 2013. These increases were achieved without increasing service levels but instead tailoring routes to customer demands. The recent changes have also reduced peak hour bus volumes on 11th Avenue by 17%. Bus stops on 11th Avenue at Cornwall Centre continue to be the busiest in the city with over 4700 transit boardings each day. Half of the passenger boarding activity is not from transfer activity, but workers, residents, and shoppers from nearby destinations. Notwithstanding the recent successes of transit, there are still many issues that exist due to the number of buses and passengers travelling in a small area. 11th Avenue is a constrained corridor with the need for multiple uses to co-exist, including businesses, pedestrian, transit th vehicles and customers, automobile traffic, and deliveries. Traffic volumes along 11 Avenue are between 6200-10700 AADT and there are delayed turning movements at both Broad Street and th Albert Street. Lane interruptions due to on-street parking and loading zones along 11 Avenue can slow bus travel in off-peak periods while vehicles illegally stopped in bus lanes during peak th periods greatly delay buses and increase congestion. High numbers of transit vehicles along 11 Avenue have also led to accelerated deterioration of the roadway and concerns regarding the large number of idling buses. Sight-line issues at driveways and alleyways have also been identified. During the summer of 2013, transit stops along 11 Avenue were consolidated between Cornwall Street and Hamilton Street. However, due to feedback from local businesses and property owners, the stop locations were adjusted. A lack of user amenities at transit stops (e.g., seating, garbage cans) and the need for higher quality transit shelters have been noted as an on-going issue throughout downtown, but particularly along this busy transit corridor. Concerns have also been raised by local businesses due to the large number of transit th passengers along 11 Avenue including crowding on sidewalks, littering, and the use of private building entrances as ad hoc transit shelters. Potential safety and security concerns have also been raised. Transit Alternatives Analysis A comprehensive transit alternatives analysis was completed to review options for transit routing in the downtown to address the identified operational issues. One of the major challenges with moving buses or stops off 11th Avenue is that the impacts are simply transferred to other streets. Based on observed ridership patterns and transit customer preference, it was recommended that transit service along 11th Avenue be maintained for now as it is easy for transit users to understand, allows for quick transfers between routes, and is located in close th proximity to downtown destinations. Maintaining transit on 11 Avenue was also seen as important to minimize walking distances for people with mobility challenges. However, the transit alternatives analysis also highlights the need for a solution for transit passengers in the medium to longer term. As activity in the downtown continues to increase, so too will transit passenger volumes. Accordingly, the transit alternatives analysis recommends that an off-street transit facility be pursued and that the City continue to protect for opportunities.
th

FEBRUARY 2014

11

IBI GROUP REGINA DOW NTOWN TRANSPORTATION STUDY PHASE TW O AND THREE REPORT: DIRECTIONS FOR DOW NTOW N TRANSPORTATION Prepared for City of Regina

These opportunities could include joint development proposals on lands being considered for development or re-development. The location, timing, and implementation of the facility will require detailed study. There also remains a need to address the impacts of on-street parking on transit operations th along 11 Avenue and look for ways to balance traffic impacts and transit quality considerations.

Downtown Transit Shuttle Analysis City Council directed that an additional option, the introduction of a free downtown shuttle service to replace bus services on 11th Avenue, be considered as part of the Downtown Transportation Study. While this option would reduce the number of buses on 11th Avenue, it would increase bus volumes on Victoria Avenue and Saskatchewan Drive and additional turning movements would exacerbate congestion at major intersections on Albert and Broad Streets. The relative walking distance and time, compared to travel time on the shuttle, would also make the service unattractive to transit customers. Operating costs for a service operating every five minutes during peak times is estimated at approximately $550,000 per year with start-up capital costs ranging from $640,000 to $3.6-million. A downtown shuttle service is not recommended at this time, particularly as a means to replace regular transit service on 11th Avenue. A circulator shuttle to complement existing transit services may be desirable in the medium to long term to connect the downtown with the new stadium, the Regina Redevelopment Initiative, and the Warehouse District. The Transit Alternatives and Downtown Transit Shuttle Analysis is available as a separate document entitled Future Directions for Transit in Downtown Regina.

4.2

Key Strategies for Transit

th th

4A) Streamline transit operations on 11 Avenue One way to reduce bus volumes along 11 Avenue is to streamline current operations by altering the frequency of routes and staggering arrivals. Consolidating transit stop locations will help to minimize impacts from parking and loading during off-peak periods and ensuring transit lanes are clear during peak periods will reduce impacts on traffic flow. Other options to improve transit operations include priority signals for buses and making improvements to problem intersections. Actions: 4A.1) Adjust schedules and layover points of transit routes to minimize layover times th on 11 Avenue and continuing to monitor traffic volume impacts. This is a larger policy action. Coordinate with larger TMP transit actions and recommendations
th

4A.2) Continue to evaluate the consolidation of bus stop locations along 11 Avenue to limit impacts on parking and facilitate passenger transfers (ongoing). This will include reviewing ridership patterns and adjusting bus route assignments to stops to reflect available sidewalk space. The City should continue to work with RDBID and downtown property owners to address any issues that arise.

FEBRUARY 2014

12

IBI GROUP REGINA DOW NTOWN TRANSPORTATION STUDY PHASE TW O AND THREE REPORT: DIRECTIONS FOR DOW NTOW N TRANSPORTATION Prepared for City of Regina

4A.3) Convert peak period bus only lanes to no stopping/no standing lanes during peak periods. Transit patrol should be maintained along the corridor, especially during the afternoon peak period. This should be coordinated with the th implementation of the recommended signage plan for 11 Avenue.
th

4B) Improve transit stops along 11 Avenue and throughout downtown Amenities such as seating and garbage receptacles at transit stops improve the comfort of transit users and reduce negative impacts on surrounding businesses. Additionally, higher quality shelters that provide protection from the weather year-round are essential to attracting more people to use transit and may help to reduce the practice of using private building entrances as transit shelters. Actions: 4B.1) Install enhanced transit stops downtown. Transit stop amenities should be provided including waste receptacles and attractive shelters. New shelters should be installed by winter 2013 with priority for installation at stops along th 11 Avenue. Increased maintenance of these facilities (frequent cleaning schedules) is also recommended.
th

4B.2) Expand existing security patrols over the entire business day on 11 Avenue between Cornwall Street and Hamilton Street.

4B.3) Undertake a passenger education and awareness program to discourage loitering in private buildings and littering.

4C) Ensure accessible transit service for all users downtown It is important for the transit system to be accessible to residents of all ages and abilities. In addition to providing low-floor buses, transit stops must be designed to provide adequate space for loading of these vehicles. Paratransit services will also continue to complement service by low-floor buses. Increasing the visibility of accessible transit stops on wayfinding signage will also greatly support a more accessible downtown. Actions: 4C.1) Ensure adequate space at transit stops to accommodate wheelchair ramps and loading of low-floor buses. This action will be should be coordinated with TMP transit actions and recommendations

4C.2) Maintain existing loading zones for paratransit services. This action will be should be coordinated with TMP transit actions and recommendations

4C.3) Increase visibility of transit stops within wayfinding strategy. This action will be should be coordinated with the overall pedestrian wayfinding strategy

FEBRUARY 2014

13

IBI GROUP REGINA DOW NTOWN TRANSPORTATION STUDY PHASE TW O AND THREE REPORT: DIRECTIONS FOR DOW NTOW N TRANSPORTATION Prepared for City of Regina

4D) Continue to plan for an off-street downtown bus terminal There remains interest in continuing to investigate opportunities for an off-street bus terminal within downtown Regina, but also recognizing that the cost of such a terminal is significant. The Downtown Transportation Study determined that the existing city-owned property on the southwest corner of Lorne Street and 11th Avenue is not adequate for an off-street terminal due to the size of the parcel and impacts of bus turning movements on traffic flow and pedestrian th safety on 11 Avenue. This conclusion could change if additional property could be acquired. The other potential location is on Saskatchewan Drive, but this is not recommended until such time as major development takes place on the rail lands; due to the fact that there would be th security concerns and the current transit activity is focused on 11 Avenue. A feasibility study would be more appropriate to identify opportunities for partnerships with new development or potential sites for acquisition. Actions: 4D.1) Purpose the development of a downtown transit terminal, potentially linking with development in the Regina Redevelopment Initiative and Warehouse District. A study will be necessary to determine timing and needs, assess benefits, and identify a preferred site to protect for implementation. Funding for this study, property acquisition, and implementation will need to be identified.

FEBRUARY 2014

14

IBI GROUP REGINA DOW NTOWN TRANSPORTATION STUDY PHASE TW O AND THREE REPORT: DIRECTIONS FOR DOW NTOW N TRANSPORTATION Prepared for City of Regina

4.3

Action Plan

Exhibit 4.1: Summary actions for transit improvements

FEBRUARY 2014

15

IBI GROUP REGINA DOW NTOWN TRANSPORTATION STUDY PHASE TW O AND THREE REPORT: DIRECTIONS FOR DOW NTOW N TRANSPORTATION Prepared for City of Regina

5
5.1

Pedestrians
Existing Conditions

Downtown Regina is a compact, walkable neighbourhood laid out in a traditional grid pattern which provides numerous routes for pedestrians to navigate between destinations. In addition, the centrally located Victoria Park is permeable on all sides facilitating through movements for pedestrians. The Scarth Street pedestrian mall is closed to vehicular traffic year-round and the recently completed City Square Plaza operates as a shared space, prioritizing pedestrians by th reducing and slowing traffic along 12 Avenue and providing a space for pedestrians to linger. In recent years resources have been dedicated to improving these pedestrian oriented spaces and offering programming to attract both office workers and residents (lunch time food trucks, farmers market, ice skating, music events). However, while the City has focused on creating and strengthening these core pedestrian destinations, there has been less focus on the streets and pathways that tie these areas to the rest of the downtown. Areas around Victoria Park and Scarth Street have high pedestrian counts on both weekdays and weekends, however many streets surrounding them, particularly to the west show a clear drop in pedestrian activity. Other streets with high pedestrian activity include th 11 Avenue and Hamilton Street. The downtown neighbourhood is bordered by four arterial roadways (Albert Street to the west, Broad Street to the east, Victoria Avenue to the south, and Saskatchewan Drive to the north). These busy roadways are wide and can act as a barrier for pedestrians travelling to and from surrounding neighbourhoods. In addition, the CP railway to the north is as a significant barrier for pedestrians travelling from the Warehouse District and residential neighbourhoods.

Exhibit 5.1: Broad Street underpass conditions for pedestrians

FEBRUARY 2014

16

IBI GROUP REGINA DOW NTOWN TRANSPORTATION STUDY PHASE TW O AND THREE REPORT: DIRECTIONS FOR DOW NTOW N TRANSPORTATION Prepared for City of Regina

Underpasses on Albert Street and Broad Street have basic infrastructure to accommodate pedestrian movement however issues related to noise and low lighting may cause some to perceive these areas as unsafe. Further, some of the arterial intersections at these underpasses (e.g., Albert Street at Saskatchewan Drive) have narrow sidewalks (<2m) with no buffer between the pedestrian travel zone and roadway. Wide curb return radii at these intersections can also make pedestrians feel unsafe next to turning vehicles. Narrow sidewalks of poor quality have also been identified along a number of these arterial roadways.

Exhibit 5.2: Narrow sidewalk at arterial intersection and along arterial roadway

Although sidewalk provision in the downtown is high, with most streets having sidewalks on both sides, problems with sidewalk quality and accessibility have been identified. Due to the lack of investment in the pedestrian realm over the years, the design and layout of downtown sidewalks is inconsistent and there is noticeable deterioration of sidewalk conditions.

Exhibit 5.3: Examples of sidewalk degradation in downtown Regina

Annual freeze-thaw cycles have caused heaving of decorative paving treatments and the use of de-icing products and ploughing machinery has accelerated the deterioration of concrete curbing. This can cause considerable accessibility issues for those with low vision or reduced mobility. Additionally, current curb ramp designs tend to limit universal accessibility of the downtown. Although the current curb ramp design is functional, a preferred design is to include two sloped ramps perpendicular to the roadway to direct wheelchairs to the pedestrian crossing, as opposed to diagonally away from these crossings. However, it is recognized that this is not possible in all locations, especially where space is limited.

FEBRUARY 2014

17

IBI GROUP REGINA DOW NTOWN TRANSPORTATION STUDY PHASE TW O AND THREE REPORT: DIRECTIONS FOR DOW NTOW N TRANSPORTATION Prepared for City of Regina

Exhibit 5.4: Current curb ramp design

Pedestrian amenities such as benches and street lighting are present throughout the downtown however there is an identified need to improve the overall streetscape quality and design. In addition to better quality sidewalk materials and designs that improve pedestrian safety and accessibility, there is also a need for streetscape elements that support pedestrian activity. Many downtown streets lack trees which provide shade and there are some gaps in the provision of street furniture (seating, garbage cans). At present, there is a 16% pedestrian mode share and a high density of short trips (<1km) originating in the downtown. This suggests that there is a lot of potential to build a strong pedestrian culture. While downtown Regina is a compact and walkable area, there is a lack of awareness that destinations are quick to access on foot and, as such, there is a perceived need for more parking. Presently there is no comprehensive wayfinding strategy for the downtown and most signage is directed towards vehicle traffic. There is a need for pedestrian oriented signage to provide information about the distance to local destinations and transit facilities.

5.2

Key Strategies

5A. Create an attractive pedestrian environment Encouraging more people to walk downtown necessitates providing an environment in which walking is enjoyable. Where possible, sidewalks along arterial roads should be widened to provide additional travel space and a buffer between pedestrians and traffic. While there are spatial constraints to widening sidewalks on a number of secondary streets, other measures can be taken to provide more room for pedestrians (e.g., consolidating street furniture). Consistency of design and the thoughtful use of quality materials are also important when creating an attractive pedestrian environment. By adopting a sidewalk design standard and using materials that withstand local weather and soil conditions, a more consistent, accessible pedestrian space can be created year-round. Regina soils are such that decorative pavers buckle and deteriorate creating an uneven walking surface prone to further degradation. In addition to being visually unappealing, degraded sidewalks with uneven surfaces create considerable accessibility issues for individuals using mobility devices, those with low vision, seniors, and parents with strollers. Ensuring that the primary walking surface is a uniform texture is less expensive to maintain and provides a more accessible pedestrian realm that is predictable and legible for people of all ages and abilities. In addition to sidewalk accessibility, providing measures that guide those with low mobility and low vision through intersections safely is essential. As discussed previously, the current curb ramp design standard is out-dated and directs pedestrians into the middle of the intersection.

FEBRUARY 2014

18

IBI GROUP REGINA DOW NTOWN TRANSPORTATION STUDY PHASE TW O AND THREE REPORT: DIRECTIONS FOR DOW NTOW N TRANSPORTATION Prepared for City of Regina

The lack of audible pedestrian signals in the downtown makes crossing streets a challenge for those with low vision. The City is planning to install more audible pedestrian signals, which will help to increase safety and universal accessibility within the downtown. Providing basic pedestrian amenities (vegetation, lighting) is also key to attracting and supporting pedestrian activity. The presence of vegetation, including street trees, creates a more inviting pedestrian realm and can help to mitigate negative weather impacts year-round. Tree boxes with increased root space reduce the need for tree replacement and ensure a healthy canopy. Where tree growth is not optimal, alternative plantings and streetscaping treatments can be used to improve the pedestrian realm. Additionally, adequate lighting on all streets not only improves visibility but also helps to increase a sense of safety. The Downtown Neighbourhood Plan contains a comprehensive pedestrian realm design strategy that includes sidewalk design and pedestrian amenities. As such, the following actions represent first steps towards realizing larger streetscaping improvements over time. Actions: 5A.1) Improve the sidewalk design along Albert Street and Broad Street. Following the work completed on Albert Street south of Victoria Avenue, extend the sidewalk improvements north along both the east and west sides of Albert Street to Saskatchewan Drive and implement similar improvements along both the east and west sides of Broad Street between Victoria Avenue and Saskatchewan Drive.

5A.2) Reconstruct the sidewalk along the north side of Saskatchewan Drive between Albert Street and Broad Street as part of road reconstruction work. The design should ensure a minimum width to ensure good accessibility and safety.
th

5A.3) Designate and maintain 11 Avenue, Victoria Avenue and Cornwall Street as key pedestrian corridors. Streetscape improvements (e.g., street greening, art work, high-quality street furniture and lighting, widening sidewalks) should be prioritized along these corridors. Where space is limited, consolidate street furniture or create green clusters to maintain existing pedestrian space (e.g. hanging baskets, narrow planters, banners).

Exhibit 5.5: Example streetscape enhancements suitable for narrow sidewalks (e.g., 11th Avenue)

FEBRUARY 2014

19

IBI GROUP REGINA DOW NTOWN TRANSPORTATION STUDY PHASE TW O AND THREE REPORT: DIRECTIONS FOR DOW NTOW N TRANSPORTATION Prepared for City of Regina

This policy should be informed by the public realm design guidelines in the Downtown Neighbourhood Plan. This policy should be coordinated with RDBID and include engagement with residents, businesses, and property owners

5A.4) Adopt a new standard for accessible sidewalk design. This will include ensuring an even and level walking surface and level sidewalks at driveways/alleyways. New guidelines should draw on publications by recognized professional organizations (e.g., Federal Highway Administration) and include input from the Accessibility Advisory committee. This is an overarching policy action. This policy should be developed with input from the Citys Accessibility Committee

5A.5) Adopt a new standard for accessible cross walk design. This will include an improved curb ramp design and slip resistant surfaces.

Exhibit 5.6: Accessible curb ramp design (Source: Federal Highway Administration)

This is an overarching policy action. This policy should be developed with input from the Citys Accessibility Committee

5A.6) Adopt a standard design for tree pits that will support a healthy tree canopy. Tree boxes and pit grates should be installed as road and sidewalk improvements are completed. Where space is limited and tree growth is not optimal, examine alternative plantings (planters, hanging baskets). Priority areas for installation include those identified in Actions 5A.1, 5A.2, and 5A.3. This is an overarching policy action. This policy should be developed and implemented with Open Space Management.

5B. Increase pedestrian safety at crosswalks and underpasses Providing safe roadway crossings is essential to support pedestrian activity. Drivers are more likely to respect the crosswalk as pedestrian space if it is clearly visible. The current crosswalk design in Regina provides minimal visibility from the perspective of drivers. This is particularly problematic at intersections with heavy traffic and high pedestrian activity. Additionally, current crossing signals do not provide information on how much time is left to cross and can lead

FEBRUARY 2014

20

IBI GROUP REGINA DOW NTOWN TRANSPORTATION STUDY PHASE TW O AND THREE REPORT: DIRECTIONS FOR DOW NTOW N TRANSPORTATION Prepared for City of Regina

pedestrians to enter the crosswalk late or vehicles to speed up to enter an intersection. Countdown signals are easier for pedestrians to understand and are an effective way to reduce pedestrian-vehicle conflicts. Curb extensions also increase pedestrian safety by shortening the distance pedestrians must cross and increasing the visibility of pedestrians to drivers. The underpasses located on Albert Street and Broad Street are the only routes for pedestrians travelling to the downtown from neighbourhoods to the north. At present the pedestrian pathways are dark and require noise mitigation to provide a sense of safety. Actions: 5B.1) Install pedestrian countdown lights at all signalized pedestrian crossings in the downtown neighbourhood (ongoing, to be completed by May 2014). This is an overarching policy action.

Exhibit 5.7: Pedestrian count-down light

5B.2) Install audible pedestrian signals at all signalized pedestrian crossings in the downtown neighbourhood (ongoing). See Exhibit 5.8 for a list of priority intersections for audible pedestrian signal installation. This is an overarching policy action.

FEBRUARY 2014

21

IBI GROUP REGINA DOW NTOWN TRANSPORTATION STUDY PHASE TW O AND THREE REPORT: DIRECTIONS FOR DOW NTOW N TRANSPORTATION Prepared for City of Regina

Exhibit 5.8: Priority intersections for audible pedestrian signal installation

Intersection Key # 675570 676200 675630 689010 692810 676270 704400 709060 708880 701820 708570 676880 701810 708560 678060 704390 677480 678110 696030

Intersection ID 3040 3604 1907 1899 797 4198 3063 2509 4209 309 2508 851 4162 1326 3087 4172 335 4244 4210

Signal Name TS010 TS011 TS032 TS009 TS031 TS033 TS111 TS110 TS112 TS113 TS114 TS066 TS089 TS091 TS014 TS044 TS??? TS027 TS250

Location Albert & 11 Ave Albert & 12 Ave Broad & 11th Ave Albert & Saskatchewan Dr Broad & Saskatchewan Dr Broad & 12 Ave Victoria & Lorne St Victoria & Smith St Victoria & Scarth St Victoria & Hamilton St Victoria & Rose St Broad & 13th Ave Saskatchewan & Hamilton St Saskatchewan & Rose St Albert & 15 Ave Saskatchewan & Lorne St Albert & 14 Ave Broad & 15th Ave Victoria & Cornwall St
th th th th th

Status Proposed Proposed Proposed Proposed* Proposed Proposed Proposed Proposed Proposed Proposed Proposed Proposed Proposed Proposed Proposed Proposed Proposed** Proposed** Proposed

Model Type DAPS DAPS DAPS DAPS DAPS DAPS DAPS DAPS DAPS DAPS DAPS DAPS DAPS DAPS DAPS DAPS DAPS DAPS DAPS

Priority D01 D02 D03 D04 D05 D06 D07 D08 D09 D09 D10 D11 D12 D13 D14 D15 D16 D17 F01

* Intersection rehabilitation required before APS can be installed. ** To be installed if Intersection is signalized in the future Priority: D - Denotes Downtown; F - Denotes already planned future signalization (APS to be installed when signalized)

FEBRUARY 2014

22

IBI GROUP REGINA DOW NTOWN TRANSPORTATION STUDY PHASE TW O AND THREE REPORT: DIRECTIONS FOR DOW NTOW N TRANSPORTATION Prepared for City of Regina

5B.3) Install high visibility crosswalk treatments at intersections with high pedestrian traffic including all intersections along Albert Street and Broad Street between th Saskatchewan Drive and Victoria Avenue, intersections along 11 Avenue at Lorne Street, Cornwall Street, and Hamilton Street, and the intersection of Victoria Avenue and Cornwall Street.

Exhibit 5.9: High visibility crosswalk

5B.4) Install a curb extension and pedestrian actuated crossing signal at the intersection of Victoria Avenue and Cornwall Street (ongoing).

Exhibit 5.10: Curb extension

5B.5) Rebuild the sidewalk on the SE, and NE corners of Hamilton Street and 12 Avenue (on-going).

th

FEBRUARY 2014

23

IBI GROUP REGINA DOW NTOWN TRANSPORTATION STUDY PHASE TW O AND THREE REPORT: DIRECTIONS FOR DOW NTOW N TRANSPORTATION Prepared for City of Regina

5B.6) Continuing to improve the pedestrian conditions at the Albert Street underpass to connect downtown to the Regina Revitalization Initiative developments. Note that some improvements have recently been made, but further improvements to lighting and security may be warranted.

5B.7) Improve the pedestrian conditions at the Broad Street underpass. This will include increasing lighting and integrating more public art.

5B.8) Create a pedestrian linkage between the downtown neighbourhood and the warehouse district (proposed location at Scarth Street).

5B.9) Re-evaluate pedestrian crossings along College Avenue.

5C. Improve sidewalk maintenance In addition to using high-quality materials and designing accessible walkways, ensuring that sidewalks are repaired and maintained in the downtown ensures that citizens can safely and reliably access destinations on foot. In addition, clearing snow and obstructions is important for increasing pedestrian activity and maintaining accessibility. Enforcing a timely schedule for snow removal in the winter and sidewalk sweeping to remove debris will ensure that sidewalks are clear and accessible year-round. Actions: 5C.1) Review the current roadway preservation program to prioritize sidewalk maintenance on downtown streets. This may include dedicating additional funding and resources to downtown sidewalk maintenance. This is an overarching policy action. This policy should be developed with the Roadways Department

5C.2) Implement a sidewalk maintenance strategy on downtown streets. This will include ensuring consistency and timely removal of snow and debris on sidewalks under City jurisdiction and increasing enforcement on private properties. Alternatively, the City could examine the implementation of municipal snow clearance of all downtown sidewalks. This is an overarching policy action. This policy should be developed with the Roadways Department and Regina Downtown BID

5D. Strengthen and grow the pedestrian culture within the downtown While downtown Regina is compact, there is a perception that walking between locations is inconvenient. Many people choose to drive between locations though it may take longer to find another parking spot than to walk. Increasing the pedestrian culture requires a strategy to shift this mindset and encourage new habits and behaviours. A clear and consistent way-finding strategy partnered with pedestrian-oriented signage will support this shift by highlighting the compact nature of downtown and the number of destinations that can be easily accessed on

FEBRUARY 2014

24

IBI GROUP REGINA DOW NTOWN TRANSPORTATION STUDY PHASE TW O AND THREE REPORT: DIRECTIONS FOR DOW NTOW N TRANSPORTATION Prepared for City of Regina

foot. Detours due to construction are particularly inconvenient for pedestrians as taking an alternate route may significantly increase travel time by diverting pedestrians even a few blocks. Planning safe and convenient pedestrian detour routes during construction projects reinforces that pedestrians are a priority group and contributes to building a pedestrian culture. Actions: 5D.1) Implement a consistent pedestrian-oriented way-finding plan for the downtown. This will include installing pavilions in locations with high pedestrian traffic that provide directions to key attractions as well as transit facilities. Accessible design features should be integrated into the way-finding strategy (e.g. raised lettering, large lettering, high-contrast colours). This policy should be developed in partnership with Regina Downtown BID

Exhibit 5.11: Examples of way-finding pillars

FEBRUARY 2014

25

IBI GROUP REGINA DOW NTOWN TRANSPORTATION STUDY PHASE TW O AND THREE REPORT: DIRECTIONS FOR DOW NTOW N TRANSPORTATION Prepared for City of Regina

5D.2) Install pedestrian-oriented street signage that displays estimated walking times to landmarks and destinations.

Exhibit 5.12: Example of pedestrian-oriented signage

Exhibit 5.13: Rendering of pedestrian-oriented street signage for Regina

5D.3) Integrate pedestrian detour planning into development project application requirements. This is an overarching policy action.

FEBRUARY 2014

26

IBI GROUP REGINA DOW NTOWN TRANSPORTATION STUDY PHASE TW O AND THREE REPORT: DIRECTIONS FOR DOW NTOW N TRANSPORTATION Prepared for City of Regina

5.3

Action Plan

Exhibit 5.14: Summary actions for pedestrian improvements

FEBRUARY 2014

27

IBI GROUP REGINA DOW NTOWN TRANSPORTATION STUDY PHASE TW O AND THREE REPORT: DIRECTIONS FOR DOW NTOW N TRANSPORTATION Prepared for City of Regina

6
6.1

Cycling
Existing Conditions

The current bicycle mode share in downtown Regina is low, currently around 0.5-1.9%; however, the potential for cycling in downtown Regina is significant. Most of the city is within a 30-minute bike ride of the downtown, which is competitive with driving times in peak periods and a high density of short trips (<5 km) in the downtown suggests there is potential to increase the number of trips made by bike considerably. The Downtown Neighbourhood Plan notes a survey conducted by the Comprehensive Planning Branch which found a latent demand for cycling to work but an inadequate supply of cycling infrastructure and end of trip facilities. Many people are interested in cycling, but may not feel comfortable cycling with traffic on all city streets. This may in part be due to the lack of cycling infrastructure in the downtown and the lack of connection to the existing cycling network. Currently, cyclists must ride with traffic in downtown Regina. The on-street bike lanes located on Lorne Street and Smith Street stop just south of Victoria Avenue and do not continue through the downtown. Additionally, there is also no east-west connection for cyclists travelling to and from adjacent neighbourhoods. Bicycle counts conducted at main intersections in 2006 and 2011 th show slightly higher volumes of cyclists travelling east-west along 12 and Victoria Avenue while the existing north-south bike routes on Lorne Street and Smith Street have similar volumes to those on Albert Street. The current lack of dedicated cycling infrastructure requires cyclists to share traffic lanes or ride on sidewalks (which is undesirable). Street maintenance and cleaning have been identified as an issue for cyclists riding on the shoulder of the road as potholes, debris (glass, stones), and snow can lead to unpredictable movements. Collision with parked vehicle doors is also a hazard when riding to the far right of traffic lanes. The railway tracks on the northern edge of downtown act as choke points for cyclists wishing to travel north-south through the City. While cycling is not permitted on sidewalks, an exception is made for cyclists travelling along the Broad Street underpass in order to increase their safety. th Cyclists also occasionally travel illegally on sidewalks in the downtown, particularly along 11 Avenue. This is a result of the lack of on-street infrastructure combined with heavy vehicle and bus traffic along this street. Cycling is restricted on the Scarth Street pedestrian mall but is permitted on City Square Plaza, though cyclists are cautioned to be mindful during times where pedestrian traffic is high (events, festivals).

FEBRUARY 2014

28

IBI GROUP REGINA DOW NTOWN TRANSPORTATION STUDY PHASE TW O AND THREE REPORT: DIRECTIONS FOR DOW NTOW N TRANSPORTATION Prepared for City of Regina

Exhibit 6.1: Broad Street underpass allowing cyclists to ride on the sidewalk

There is also an identified lack of amenities for cyclists in downtown Regina, in particular shortterm on-street bicycle parking. While RDBID reports over 250 spots in bicycle stands and an additional 40 spots in bicycle cages, these stalls are largely located in concentrated areas and function better for long-term visits. Short-term on-street bike parking is less common and not evenly distributed throughout the downtown. Many streets have no bicycle parking or provide minimal stalls (2-4) to service an entire block. In addition to on-street bike parking, the Regina Downtown Neighbourhood Plan identified a lack of end of trip facilities (showers, lockers) and recommended creating incentives for developers to incorporate these facilities into projects. The cycling culture in Regina is growing with groups like Bike Regina advocating for cycling infrastructure improvements. Increased awareness and education for cyclists and motorists about how to share the road will go a long way to increasing cyclist safety and increasing the profile of commuter cycling.

6.2

Key Strategies

6A) Provide safe and direct routes for cyclists that connect with the city-wide network Increasing cycling in the downtown requires adequate and safe cycling infrastructure. Extending the existing north-south bike lanes on Lorne Street and Smith Street will allow direct access from the downtown to the existing bike network. Additionally, an east-west link connecting downtown to adjacent Cathedral and Heritage neighbourhoods is needed.

FEBRUARY 2014

29

IBI GROUP REGINA DOW NTOWN TRANSPORTATION STUDY PHASE TW O AND THREE REPORT: DIRECTIONS FOR DOW NTOW N TRANSPORTATION Prepared for City of Regina

Actions: 6A.1) Upgrade and extend bike lanes on Lorne Street north through downtown. This can be accommodated by restriping the existing road space (~15m) to allow for an ~1.5m bike lane. Minor upgrades for Smith Street (the parallel route to Lorne Street) are also possible (e.g. sharrows), but it was determined that on-street parking was important to maintain.

Exhibit 6.2: Example section of Lorne Street looking north, between Victoria Avenue and 11th Avenue

6A.2) Install a direct east-west bike lane on 12 Avenue. This can be accommodated th by restriping the existing road space (~13m on 12 Avenue) to allow for a 3m two-way th bike lane located next to sidewalk. 12 Avenue is recommended due to the relatively low traffic levels, and minimal impact expected to on-street parking.

th

FEBRUARY 2014

30

IBI GROUP REGINA DOW NTOWN TRANSPORTATION STUDY PHASE TW O AND THREE REPORT: DIRECTIONS FOR DOW NTOW N TRANSPORTATION Prepared for City of Regina

Exhibit 6.3: Example section of 12th Avenue looking east, between Hamilton Street and Rose Street

6A.3) Explore the feasibility of installing an additional east-west bikeway between th th Victoria Avenue and College Avenue, using 14 Avenue and 15 Avenue as one-way bicycle couplets (See Action 7C.1).

6B) Increase the provision of cycling amenities located within the downtown A survey completed by the Comprehensive Planning Branch identified insufficient end-of-trip facilities as a reason some people choose not to bike to work. The Regina Downtown Business Improvement District reports 250 bike parking spots within the downtown but are concentrated in a handful of locations and should be complemented with short-term on-street bike parking along commercial streets in coordination with other streetscape enhancement projects. Increasing the provision of end-of-trip facilities including showers and bike lockers within buildings downtown will also encourage people to consider commuting to work via bike. The Downtown Neighbourhood Plan recommended encouraging the provision of cycling facilities through a bonusing framework for new developments.

Actions: 6B.1) Increase the number of on-street bike racks. This will include increasing the number of short-term on-street bike racks to ensure there is bike parking available in priority areas including along retail corridors and streets close to key destinations (e.g., Hamilton Street, Lorne Street, Cornwall Street).

FEBRUARY 2014

31

IBI GROUP REGINA DOW NTOWN TRANSPORTATION STUDY PHASE TW O AND THREE REPORT: DIRECTIONS FOR DOW NTOW N TRANSPORTATION Prepared for City of Regina

This is an overarching policy action. This policy should be considered as part of streetscape enhancements to ensure a consistent style of stand.

Exhibit 6.4: Examples of on-street bike racks

6B.2) Examine opportunities to coordinate the removal of parking meter posts with the installation of post and ring style bike parking stands.

6B.3) Set bike parking minimums and incentivize end-of-trip facility provision for new developments. This will include setting bike parking minimums as part of new development standards and providing incentives to include end of trip facilities (showers, lockers) as part of new developments within the downtown. This is an overarching policy action. This policy should be coordinated with the Transportation Master Plan and Official Community Plan

6B.4) Promote the availability of existing bike amenities for downtown residents and employees. Buildings with designated bike parking on-site or shower facilities should make these amenities known to residents and/or employees within the building to promote their use.

6C) Increase safety of cyclists at underpasses Cyclists moving between downtown and neighbourhoods to the north must travel through either the Albert Street or Broad Street underpass. Currently cyclists are permitted to ride on the sidewalk at Broad Street but must travel with traffic on Albert Street. Providing a separate pathway for cyclists along Albert Street and clarifying how sidewalk space should be shared with pedestrians along Broad Street will help to reduce conflicts with other modes.

FEBRUARY 2014

32

IBI GROUP REGINA DOW NTOWN TRANSPORTATION STUDY PHASE TW O AND THREE REPORT: DIRECTIONS FOR DOW NTOW N TRANSPORTATION Prepared for City of Regina

Actions:

6C.1) Improve cycling conditions at the Albert Street underpass. This will include permitting cyclists to ride on the sidewalk as well widening and striping the sidewalk to increase clarity for pedestrians and cyclists to share the space. An option to create a separate lane for cyclists by altering the design of the current retaining wall was investigated, but was not considered feasible at this time.

6C.2) Improve cycling conditions at the Broad Street underpass. This will include improving signage to clarify how cyclists and pedestrian should share sidewalk space.

6C.3) Provide signage and road markings at intersections near underpasses (e.g., Saskatchewan Drive and Broad Street, Dewdney Avenue and Broad Street) to direct cyclists to the shared walkways.

6C.4) Include a cycling path between the downtown neighbourhood and the warehouse district in coordination with the pedestrian linkage (See Action 5B.9).

6D) Promote cycling culture in downtown Regina Support for local cycling groups and events helps to show that city administration supports cycling as a great way to commute to the downtown. Events like the Commuter Challenge should continue to be supported in order to encourage more people to cycle to work and bring attention to new bike infrastructure and facilities as they are built. Additionally local cycling groups currently host a number of events in the downtown including workshops on cycle commuting and planning safe routes. Supporting these initiatives can greatly increase the visibility and profile of cycling in the city for both commuter and recreational travel. Collecting high quality data on the volume of cyclists using different routes is important for policymakers to target infrastructure and operational improvements that will increase safety and support cycling. Currently, some cycling data is collected using a roving Miovision camera, which provides information on cyclist turning movements at downtown intersections. Increased and consistent monitoring of downtown cycling will help direct improvements where they are needed.

FEBRUARY 2014

33

IBI GROUP REGINA DOW NTOWN TRANSPORTATION STUDY PHASE TW O AND THREE REPORT: DIRECTIONS FOR DOW NTOW N TRANSPORTATION Prepared for City of Regina

Actions: 6D.1) Increase monitoring of cycling traffic in conjunction with new bike lanes. This may include supplementing spot counts and the Miovision camera with a public display counter to collect data and raise the profile of cycling in the city. This is an overarching policy action. It should be coordinated with the goals and actions of the Transportation Master Plan

Exhibit 6.5: Public display bicycle traffic counter

6D.2) Continue to promote cycling in the downtown. This will include continuing support for events such as the Commuter Challenge, providing support and visibility for community cycling events on the Citys website, and consulting and engaging with community advocacy groups to identify on-going needs. This is an overarching policy action. It should be coordinated with the goals and actions of the Transportation Master Plan

6D.3) Work with Regina Downtown BID to provide cycling information on their website and to promote cycling downtown.

6D.4) Develop awareness and educational programs for all road users to promote safe cycling throughout the city and to downtown. This is an overarching policy action. It should be coordinated with the goals and actions of the Transportation Master Plan

FEBRUARY 2014

34

IBI GROUP REGINA DOW NTOWN TRANSPORTATION STUDY PHASE TW O AND THREE REPORT: DIRECTIONS FOR DOW NTOW N TRANSPORTATION Prepared for City of Regina

6.3

Action Plan

Exhibit 6.6: Summary actions for cycling improvements

FEBRUARY 2014

35

IBI GROUP REGINA DOW NTOWN TRANSPORTATION STUDY PHASE TW O AND THREE REPORT: DIRECTIONS FOR DOW NTOW N TRANSPORTATION Prepared for City of Regina

7
7.1

Traffic and Roads

Existing Conditions

Downtown streets are laid out in traditional grid network with a mix of one-way and two way streets. All east-west streets between Saskatchewan Drive and Victoria Avenue function as twoway streets, while all north-south streets between Albert Street and Broad Street function as th th one-way streets. Scarth Street between 11 and 12 Avenue operates as a pedestrian mall with th no vehicle traffic, while the new City Square Plaza on 12 Avenue allows for west bound traffic to and from Cornwall Street (no through traffic) as developed during Phase One of the Downtown Transportation Study. As part of this study, a comprehensive VISSIM simulation model of downtown traffic was created. Traffic flows were modelled from Saskatchewan Drive to College Avenue and Osler Street to Angus Street. Overall, traffic operations are acceptable within these boundaries, although individual movements may be delayed by the presence of a turning vehicle or pedestrians. Most intersections on the arterial roads, however, experience capacity and delay th problems during peak periods. In addition to vehicle traffic, 11 Avenue accommodates a large amount of bus traffic which also contributes to congestion. The railway located to the north of the downtown forces northbound traffic to travel through underpasses located at Albert Street and Broad Street creating considerable bottlenecks and delays. Arterial intersections along Saskatchewan Drive at these underpass locations have numerous turning movements, however the current design constrains the capacity to accommodate turning vehicles efficiently. Further, much of the traffic travels along arterial roadways and there is potential to divert some traffic to non-residential secondary streets to reduce congestion. There are limited opportunities to expand the roadway network capacity in the Downtown. Conversion of one-way streets to two-way operation has the potential to improve circulation and routing options, reduce out-of-way travel, and slow traffic. However, the potential for two-way streets to impact options for parking and bike routes must be considered. It is also recognized that the discussion of two-way streets is controversial given the lingering concerns about the th th conversions of 11 Avenue and 12 Avenue.

7.2

Key Strategies

7A) Increase capacity of arterial intersections with busy turning movements Increasing the capacity of busy intersections to accommodate turning movements will allow traffic to flow more continuously during peak periods and results in fewer bottlenecks. Actions: 7A.1) Widen Saskatchewan Drive to create an additional westbound lane from Lorne Street, becoming right turn lane at Albert Street.

7A.2) Extend westbound left turn lane on Saskatchewan Drive to McInytre Street.

7A.3) Continue pedestrian safety improvements by installing audible pedestrian signals and pedestrian countdown lights at Saskatchewan Drive and Albert Street intersection (See Action 5B.1 and 5B.2).

FEBRUARY 2014

36

IBI GROUP REGINA DOW NTOWN TRANSPORTATION STUDY PHASE TW O AND THREE REPORT: DIRECTIONS FOR DOW NTOW N TRANSPORTATION Prepared for City of Regina

7A.4) Convert middle southbound through-lane on Albert Street to a shared throughleft turn lane at the intersection of Saskatchewan Drive becomes double left turn at peak times. Traffic signal modifications will be required.

Exhibit 7.1: Recommended improvements at the intersection of Albert Street and Saskatchewan Drive

7A.5) Provide shared through-left turn lane on eastbound Saskatchewan Drive at the intersection of Broad Street during peak times; extend existing left turn lane by ~10 metres. Traffic signal modifications will be required.

7A.6) Provide shared through-left turn lane on southbound Broad Street at the intersection of Saskatchewan Drive during peak times. Traffic signal modifications will be required.

FEBRUARY 2014

37

IBI GROUP REGINA DOW NTOWN TRANSPORTATION STUDY PHASE TW O AND THREE REPORT: DIRECTIONS FOR DOW NTOW N TRANSPORTATION Prepared for City of Regina

Exhibit 7.2: Recommended improvements at the intersection of Broad Street and Saskatchewan Drive

7B) Continue to improve intersection operations on downtown streets Increasing queuing capacity and providing more turning opportunities at intersections will help to address congestion issues and traffic bottlenecks. Additionally, installing more advanced vehicle detection technology can improve intersection operations.

Actions: 7B.1) Provide new eastbound right-turn lane on 11 Avenue at Albert Street.
th th

7B.2) Make southbound curb extension on Broad Street at 11 Avenue permanent to facilitate southbound right-turn bus movements.

FEBRUARY 2014

38

IBI GROUP REGINA DOW NTOWN TRANSPORTATION STUDY PHASE TW O AND THREE REPORT: DIRECTIONS FOR DOW NTOW N TRANSPORTATION Prepared for City of Regina

Exhibit 7.3: Recommended improvements at the intersection of Broad Street and 11th Avenue

7B.3) Provide new eastbound right-turn lane on 12 Avenue at Broad Street and install an advanced eastbound left-turn.

th

7B.4) Upgrade vehicle detection technology for turn signal on Broad Street at Victoria Avenue (completed).

7C) Improve downtown traffic circulation by diverting some traffic off arterial roadways Diverting some traffic off of arterial roadways and onto secondary streets can relieve some congestion and improve overall traffic circulation. Converting one-way streets to two-way can also help to increase route options. For Phase Two, traffic modelling was undertaken to examine if there would be merit in considering the conversion of Hamilton Street and Rose Street to twoth way. A scenario involving the conversion of 11 Avenue back to one-way was also examined at the request of the RDBID, but was shown to have significant negative impacts on traffic movement. Based on past studies, 13 Avenue, 14 Avenue and 15 Avenue were identified as candidates for two-way conversion and examined as part of Phase Three. Lorne Street and Smith Street were also identified as candidates, but it was determined that two-way operations on these streets would preclude the extension of bike facilities and limit parking. Based on the traffic modelling, it was shown that there would be little or no increases in traffic delays as a result of the conversion of these streets to two-way, but overall travel distances th th would decrease as a result of more direct travel routings. On 14 and 15 Avenue in particular, two-way streets could also help to reduce traffic speeds in front of the residential homes on these streets.
th th th

FEBRUARY 2014

39

IBI GROUP REGINA DOW NTOWN TRANSPORTATION STUDY PHASE TW O AND THREE REPORT: DIRECTIONS FOR DOW NTOW N TRANSPORTATION Prepared for City of Regina

In addition to the conversion of one-way streets, it is recommended that a study be undertaken to assess the potential for part-time opening of the F.W. Hill Mall on Scarth Street to vehicular traffic. The purpose of part-time opening, during non-daytime periods of reduced pedestrian activity, would be to improve loading and delivery access to properties located on this block th th between 11 Avenue and 12 Avenue. Many pedestrian malls and streets around the world use a part-time system, including the popular Stephen Avenue Mall in Calgary, to balance the needs of local businesses and the desire to provide pedestrian priority at peak times. Full-time vehicular access to the F.W. Hill Mall is not recommended. Potential alternatives to be studied include one-way or two-way operation and whether on-street parking would be permitted. Actions: 7C.1) Advance the conversion of 13 Avenue to a two-way street between Albert Street and Broad Street. Prior to finalizing the decision on feasibility and timing of this conversion, conceptual designs will need to be prepared and presented to area residents. 7C.2) Study the conversion of Hamilton Street and Rose Street to two-way streets between Saskatchewan Drive and Victoria Avenue (and potentially south to College Avenue). Prior to finalizing the decision on feasibility and timing of these conversions, conceptual designs will need to be prepared and presented to area residents (these conversions should also be done in conjunction with preferred north-south cycling routes). 7C.3) Install new traffic signals at 14 Avenue/Albert Street and 15 Avenue/Broad Street to facilitate pedestrian and cyclist crossings and to improve the safety of these intersections for all users. 7C.4) Assess part-time opening of the F.W. Hill Mall (Scarth Street) to vehicular traffic during non-daytime periods with low pedestrian demand to improve loading and delivery to local business and improve traffic circulation.
th th th

FEBRUARY 2014

40

IBI GROUP REGINA DOW NTOWN TRANSPORTATION STUDY PHASE TW O AND THREE REPORT: DIRECTIONS FOR DOW NTOW N TRANSPORTATION Prepared for City of Regina

7.3

Action Plan

Exhibit 7.4: Summary actions for traffic improvements

FEBRUARY 2014

41

IBI GROUP REGINA DOW NTOWN TRANSPORTATION STUDY PHASE TW O AND THREE REPORT: DIRECTIONS FOR DOW NTOW N TRANSPORTATION Prepared for City of Regina

8
8.1

Parking and Loading

Existing Conditions

Parking in the downtown is accommodated through a mix of on-street parking stalls, parkades and garages, as well as surface parking lots. Despite the large amount of stalls available in the downtown there is a perceived lack of parking by residents and visitors. This is largely due to a lack of awareness of parking options. The Regina Downtown Business Improvement District has been trying to increase awareness by providing maps and listings on their website however there is little signage directing people to parking facilities once they reach the downtown. Most streets in downtown Regina provides some on-street parking which local business owners feel is important to their business; however on-street parking stalls are currently priced low ($1/hour; free evenings and weekends) compared to parkades and lots (between $4-11/day). This pricing scheme encourages long-term stays in on-street stalls and reduces the availability and turnover of short-term parking. Additionally, there is a noted lack of enforcement of on-street parking violations and fines levied by the City are not significant enough to promote a shift in this behaviour (~ $10 if paid within 14 days). On-street parking has been noted as problematic during peak periods where transit and traffic th congestion is already a concern (e.g., 11 Avenue). More strict enforcement of no stopping/no standing zones is needed. The City is currently completing the Downtown and Vicinity Parking Study to assess the current supply and use of parking in downtown Regina. This study is nearing completion and provides a more comprehensive look at parking issues in the downtown. Their recommendations support key strategies of increasing awareness about current parking options, updating current pricing and enforcement policies to increase on-street parking availability, upgrading metering equipment to maximize the efficient use of space and resources. The following is a summary of the recommendations from the Downtown and Vicinity Parking Study: 1) Replace single space meters with multi-space units. Configure to be Pay by Space or Pay by Plate 2) Look to add metering technology in residential shoulder areas (e.g., 2-3 blocks east, south and west of downtown) 3) Replace ticket management software technology. Upgrade to a modern, wireless integrated system. 4) Increase the number of parking enforcement personnel and expand hours. Two-hour time periods and meters should be priority during business hours while non-time sensitive violations should be priority after business hours and on weekends. 5) Upgrade parking enforcement technology equipment 6) Adjust the wording of Section 92, Removal of Obstruction, in the Traffic Bylaw 9900, to identify a parked vehicle as an object obstructing the Public Right of Way to rightful passage of other vehicles including snow ploughs and maintenance equipment 7) Collect outstanding ticket revenue. Review the process for ticket revenue collection. 8) Develop new parking pricing policies to reinforce the use of parking meters for short-term parking. Increase meter fees and daily/monthly permit fees to ~$2/hour.

FEBRUARY 2014

42

IBI GROUP REGINA DOW NTOWN TRANSPORTATION STUDY PHASE TW O AND THREE REPORT: DIRECTIONS FOR DOW NTOW N TRANSPORTATION Prepared for City of Regina

9) Halt the practice of issuing permits for parking at meters and increase fines to deter illegal parkers. Develop a simplified system of identifying exemption permissions. 10) Improve coordination and communication with off-street run facilities. 11) Consider investment in off-street parking facilities. Ensure cash-in-lieu or equivalent parking maximum penalty payments made to the City in respect of creating or reducing downtown parking are made available to fund parking improvements in the downtown and shoulder districts. 12) Allow the Parking Services Branch to run like a business in order to utilize its own revenues in an expeditious manner to generate positive economic and service returns. Assign reserve accounts for financial stabilization and business continuity, equipment replacement and repairs, and future capital expenditures. Shift responsibility for supply and management of parking meters, management of on-street stalls, and street permits to Parking Services. 13) Develop a new brand for Parking Services. Consider changing the name to ParkRegina and create new logo. Get the word out that Regina is open for business 14) Establish a Stakeholders Advisory Committee to be aware of parking challenges and solutions, to review policies and practices, and to propose appropriate solutions and help communicate them to the Public.

FEBRUARY 2014

43

IBI GROUP REGINA DOW NTOWN TRANSPORTATION STUDY PHASE TW O AND THREE REPORT: DIRECTIONS FOR DOW NTOW N TRANSPORTATION Prepared for City of Regina

Implementation and Costing

Exhibit 9.1 provides a summary of the key actions identified through the work of the Downtown Transportation Study. Timelines are suggested for each action based on need, but priorities may be adjusted to take into account specific opportunities. The table also identifies an approximate cost for each action. These costs should be considered very high level as many actions require more detailed designs in order to refine the cost estimate. In total, the key actions are estimated to require approximately $7.6-million in funding over the 2014 2019 period; however, a large portion of this is due to the Saskatchewan Drive widening. th Additional longer term needs, including the major re-build of 11 Avenue and the Victoria Avenue Streetscaping project should be planned for, but may not be required before 2019.

Exhibit 9.1: Recommended Actions and Costs

ACTION

TIMELINE

CAPITAL COST (2014-2019)

Downtown Transportation Working Group Roadways Saskatchewan Drive/Albert Street improvements Saskatchewan Drive/Broad Street improvements Saskatchewan Drive Widening (Lorne to Angus) th 11 Avenue/Broad Street improvements th 12 Avenue/Broad Street improvements th 13 Avenue Two-Way Conversion Design and Consultation Scarth Street Traffic Conversion Study and Design Pedestrians th Pedestrian Corridor Study and Design 11 Avenue Pedestrian Corridor Study and Design Victoria Avenue Reconstruction of Sidewalk North Side of Saskatchewan Drive Curb Extension, Crosswalk, and Traffic Signal Victoria Avenue at Cornwall Street Underpass Improvements and Public Art Broad Street Annual Line Item Accessible Pedestrian Signals for downtown Pedestrian Wayfinding and Signage Cycling th Extension of Lorne Street Bikeway to 11 Avenue th 12 Avenue Bikeway (Angus to Osler Street)

Immediate 2015 2015 2016 2015 2015 2017 2018 $600,000 $400,000 $4,200,000 $300,000 $250,000 $75,000 $50,000

ANNUAL OPERATING COST Staff Time

2016 2017 2018 2014 2016

$100,000 $100,000 $250,000 $250,000 (funded) $500,000 $80,000 (two annually)

2017 2015 2017

$250,000 $50,000 $250,000

FEBRUARY 2014

44

IBI GROUP REGINA DOW NTOWN TRANSPORTATION STUDY PHASE TW O AND THREE REPORT: DIRECTIONS FOR DOW NTOW N TRANSPORTATION Prepared for City of Regina

ACTION

TIMELINE

CAPITAL COST (2014-2019) $50,000 $50,000 $100,000

ANNUAL OPERATING COST

South of Downtown East-West Bikeway Study and Design Signage and Road Marking Improvements Broad Street underpass approaches 5-year expansion of sidewalk short-term bicycle parking 100 spaces per year for 5 years Transit th Security Patrol for Transit Stops on 11 Avenue th New Transit Shelters 11 Avenue Garbage Receptacles at Downtown Bus Stops with daily clearing Total

2016 2015 2015-2020

Immediate 2014 Immediate $180,000 (funded)

$50,000

$50,000 $8,005,000 (total) $7,575,000 (unfunded) $180,000

Projects not included: Implementation of 11 Avenue Streetscaping ($15-million) Resurfacing of 11 Avenue for buses (not necessary if street rebuilt) Implementation of Victoria Avenue pedestrian corridor ($10-15-million) Implementation of 13 Avenue Two-Way Conversion/Bikeway ($500,000) Sidewalk improvements along Albert Street and Broad Street ($7,500,000)
th th th

FEBRUARY 2014

45

APPENDIX B: Table of Actions and Costs Action Downtown Transportation Working Group Roadways Saskatchewan Drive/Albert Street improvements Saskatchewan Drive/Broad Street improvements Saskatchewan Drive Widening (Lorne to Angus) 11th Avenue/Broad Street Improvements 12th Avenue/Broad Street Improvements 13th Avenue Two-Way Conversion Design and Consultation Scarth Street Traffic Conversion Study and Design Pedestrians Pedestrian Corridor Study and Design 11th Avenue Pedestrian Corridor Study and Design Victoria Avenue Reconstruction of Sidewalk North Side of Saskatchewan Drive Curb Extension and Crosswalk Victoria Avenue at Cornwall Street Underpass Improvements and Public Art Broad Street Annual Line Item Accessible Pedestrian Signals for downtown Pedestrian Wayfinding and Signage Cycling Extension of Lorne Street Bikeway to 11th Avenue 12th Avenue Bikeway (Angus to Osler Street) South of Downtown East-West Bikeway Study and Design Signage and Road Marking Improvements Broad Street underpass approaches 5-year expansion of sidewalk short-term bicycle parking 100 spaces per year for 5 years Transit Security Patrol for Transit Stops on 11th Avenue Timeline Immediate Capital Cost (2014-2019) Annual Operating Cost Staff Time

2015 2015 2016 2015 2015 2017 2018

$600,000 $400,000 $4,200,000 $300,000 $250,000 $75,000 $50,000

2016 2017 2018 2014 2016

$100,000 $100,000 $250,000 $250,000 (funded) $500,000 $80,000 (two annually)

2017

$250,000

2015 2017 2016 2015

$50,000 $250,000 $50,000 $50,000

2015-2020

$100,000

Immediate

$50,000

-2New Transit Shelters 11th Avenue Garbage Receptacles at Downtown Bus Stops with daily clearing Total 2014 Immediate $8,005,000 (total) $7,575,000 (unfunded) $180,000 (funded) $50,000 $180,000

Projects not included: Implementation of 11th Avenue Streetscaping ($15-million) Resurfacing of 11th Avenue for buses (not necessary if street rebuilt) Implementation of Victoria Avenue pedestrian corridor ($10-15-million) Implementation of 13th Avenue Two-Way Conversion/Bikeway ($500,000)

Regina Downtown Transportation Study

Directions for Transit in Downtown Regina

Prepared for City of Regina by IBI Group

February 2014

IBI GROUP DOWNTOWN TRANSPORTATION STUDY DIRECTIONS FOR TRANSIT IN DOWNTOWN REGINA Prepared for City of Regina

February 2014

IBI GROUP DOWNTOWN TRANSPORTATION STUDY DIRECTIONS FOR TRANSIT IN DOWNTOWN REGINA Prepared for Prepared for City of Regina

Table of Contents
1 Introduction ............................................................................................................................. 1 2 Context .................................................................................................................................... 2 History .................................................................................................................... 2 Today .................................................................................................................... 3 Future .................................................................................................................... 4 Transits Importance to Downtown .......................................................................... 4 3 Issues Identified...................................................................................................................... 5 3.1 Roadway Network Constraints .................................................................................... 5 3.2 11th Avenue Issues ...................................................................................................... 6 3.3 Stakeholder Comments ............................................................................................... 7 4 Downtown Transit Network ................................................................................................... 8 4.1 Assessment Criteria .................................................................................................... 9 4.2 Routing Options ......................................................................................................... 10 Two-Way Routing on 11th Avenue ......................................................................... 10 Additional Downtown Transit Corridor ................................................................... 11 Saskatchewan Drive and 11th Avenue ................................................................... 12 Options Not Explored ............................................................................................. 13 4.3 Assessment of Route Options ................................................................................... 14 4.4 Transfer Location Options ......................................................................................... 15 11th Avenue Stop Consolidation ............................................................................ 15 Lorne Street On-Street Terminal ........................................................................... 15 Transit Terminal Study ........................................................................................... 15 4.5 Recommendations .................................................................................................... 16

February 2014

IBI GROUP DOWNTOWN TRANSPORTATION STUDY DIRECTIONS FOR TRANSIT IN DOWNTOWN REGINA Prepared for Prepared for City of Regina

Table of Contents (continued)

5 Downtown Transit Shuttle ................................................................................................... 17 5.1 Other Cities ............................................................................................................... 17 Winnipeg: Downtown Spirit bus ............................................................................. 17 Halifax: Free Rides Everywhere Downtown (FRED) Shuttle ................................. 19 Quebec City: colobus .......................................................................................... 19 Summary of Findings ............................................................................................. 21 5.2 Potential Shuttle Service ........................................................................................... 22 Vehicles ................................................................................................................. 24 5.3 Capital Costs ............................................................................................................. 25 5.4 Operating Costs ........................................................................................................ 26 5.5 Overall Costs (2014-2025) ........................................................................................ 28 5.6 Assessment ............................................................................................................... 29 5.7 Summary of Findings ................................................................................................ 31 5.8 Recommendations .................................................................................................... 32 6 Recommendations................................................................................................................ 33 6.1 Short Term Recommendations ................................................................................. 33 6.2 Long-Term Recommendations .................................................................................. 33

FEBRUARY 2014

ii

IBI GROUP DOWNTOWN TRANSPORTATION STUDY DIRECTIONS FOR TRANSIT IN DOWNTOWN REGINA Prepared for Prepared for City of Regina

Introduction

The Regina Downtown Transportation Study (DTS) was established to review and analyze existing and future transportation patterns and set strategies, actions, and policies for multimodal transportation in downtown Regina. Over the course of the study, the role of transit in meeting downtown transportation needs and its fit with other aspects of downtown life emerged as a major theme. This report, Directions for Transit in Downtown Regina, summarizes the transit-related aspects of the Regina Downtown Transportation Study and provides greater detail on the analysis of issues that emerged during the course of the study. Components of this report include: An overview of the transit context in downtown Regina; The review of issues identified related to transit; The identification and assessment of transit network options downtown; The assessment of the feasibility of a downtown transit shuttle, as directed by City Council; and, Recommendations for immediate, short-, and long-term policies and actions related to transit.

The assessment of the feasibility for a downtown transit shuttle service is in response to a motion approved by City Council on July 29, 2013: WHEREAS, the recent Transit Route Review and the Downtown Transportation Study (DTS), which is nearing completion, both recommend the continued use of 11th Avenue as the central transit location in the downtown; and WHEREAS, 11th Avenue also experiences high demand for traffic, parking and pedestrians, resulting in adjacent businesses expressing concerns about traffic congestion, parking, the location of transit shelters, security, sidewalk space and littering; and WHEREAS, neither the Transit Route Review nor the DTS considered limiting full-size buses to the arterial roads at the boundaries of the downtown and using a smaller, zerofare shuttle service inside those boundaries. THEREFORE BE IT RESOLVED, that the Administration be directed to expand the scope of the DTS to include a review of the feasibility of restricting full-size buses to Saskatchewan Drive, Albert Street, Broad Street and Victoria Avenue, along with the provision of a free-fare, smaller bus shuttle service within the area defined by those roads BE IT FURTHER RESOLVED that recommendations related to the above form part of the DTS report to City Council in November of 2013. Section 5 of this report focuses on addressing this motion.

February 2014

IBI GROUP DOWNTOWN TRANSPORTATION STUDY DIRECTIONS FOR TRANSIT IN DOWNTOWN REGINA Prepared for Prepared for City of Regina

Context

Streetcar Service on 11th Avenue, looking west at Hamilton (source: Regina Leader-Post)

History
For much of its history, transit has played a significant role in the development and growth of downtown Regina and the surrounding neighbourhoods, enabling expansion and growth in the pre-war and pre-automobile era of urban development. The introduction of streetcar service in the city in 1911 allowed the city to expand beyond its boundaries while providing transportation to the commerce, retail, and cultural hubs downtown. Through this period of rapid growth, much of the city was built around new streetcar lines with a compact built form, pedestrian-oriented streets, and main-street retail on corridors such as Albert Street, Broad Street, Dewdney Avenue, and 13th Avenue. And similar to the transit system today, the system was oriented around downtown and the citys main street 11th Avenue. Ridership on transit boomed in the era before automobile travel became commonplace, peaking after the Second World War with over 17.5-million passengers in 1946 (compared to approximately 6-million passengers annually today). During this era, transit was the only way to get around other than by foot or bike. In 1950, the streetcar network was abandoned and replaced by trolley buses and diesel buses. The post-war era of automobile-oriented growth changed the role of transit throughout the city, as new neighbourhoods built at the periphery of the city were less dense and more difficult to serve by transit. Transit ridership fell during this period, but downtown Regina remained an anchor in the transit system as the centre of employment, services, and shopping in the city.

February 2014

IBI GROUP DOWNTOWN TRANSPORTATION STUDY DIRECTIONS FOR TRANSIT IN DOWNTOWN REGINA Prepared for Prepared for City of Regina

Track map of Reginas streetcar network prior to decommissioning in 1950. Routes were focused on downtown and follow many of the main street corridors that still exist today. In recent decades, changing retail patterns have shifted non-commuter travel demand to large format centres in the citys east, northwest, and southwest corners. Despite this, Cornwall Centre and the surrounding area have retained substantial share in the citys retail market; this is a unique feature in a mid-sized Canadian city such as Regina. Employment continues to play a strong role in Reginas downtown; however, the vast majority of workers now live in the citys suburban neighbourhoods where transit faces challenges to provide competitive service. As a result, while ridership is growing, the proportion of morning peak period trips by transit remains at 4% citywide and at 6% to and from downtown.

Today
Downtown Regina continues to play a crucial role in Regina Transits network and remains the most important destination for its customers. Carrying approximately 6-million passengers per year, or approximately 27,000 trips per day. Over 30% of daily trips either originate from or are bound to the downtown. Because of this, downtown is, from a customer convenience and service efficiency standpoint, the most suitable location to facilitate transfers between different routes. In 2009, Regina Transit completed its Transit Investment Plan. This plan sets the direction for changes to the transit network in the city to respond to changing travel patterns and customer preferences. The recommended network included more direct and time-competitive routes and reduced waits on busier routes. In July 2013, Regina Transit implemented substantial changes to its system as part of the implementation of its Transit Investment Plan. These changes increased the directness of routes to reduce travel times and also introduced express routes on Albert Street (Route 40) and Victoria Avenue (Route 50). Service frequencies also changed on many routes at peak times, with busier routes moving from a 20-minute to a 15-minute schedule and less-busy routes moving from a 20-minute to a 30-minute schedule. The net impact was a reduction in bus volumes in the busiest hour in the downtown by approximately 17%. The system changes also created provided greater opportunities for transfers at nodes at centres outside of downtown.

February 2014

IBI GROUP DOWNTOWN TRANSPORTATION STUDY DIRECTIONS FOR TRANSIT IN DOWNTOWN REGINA Prepared for Prepared for City of Regina

Currently, 14 of the systems 20 routes travel through downtown Regina. Of these, all travel on through 11th Avenue, with the exception of the recently introduced Route 40, which provides express service on Albert Street. The east-to-west routing through downtown is required to maintain cross-town service between key origins and destinations, for example from the northwest to the University of Regina, which reduces the need for transfers.

Future
The Downtown Neighbourhood Plan identified transit as being crucial for the future of downtown. Increased transit service and usage were highlighted as important elements to support employment, residential, retail, and cultural growth and activity. Continued improvements to the Regina Transit network are planned as part of the implementation of the Transit Investment Plan the citys upcoming Transportation Master Plan. More routes will feed into express and cross-town routes outside of downtown at major transit nodes located in activity and retail centres such as Northgate, Southland Mall, Superstore (both locations), and Golden Mile. While this may reduce the number of transfers, downtown will remain as a major destination for transit customers. Express routes on Albert Street and Victoria Avenue will play a greater role and also allow for transit riders to bypass downtown without transferring. As Reginas downtown grows more new office towers and residential buildings are being added over the next decade transit will need to be attractive, competitive, and convenient to help absorb the increase in travel demand. Transit growth potential is also greatest for trips to and from the city centre with its high concentration of employment and limited supply and the cost of parking. In the future, transit and downtown will have an increasingly interdependent relationship, despite challenges today.

Transits Importance to Downtown

Transit has the highest potential to accommodate travel demand growth in downtown Regina from new office towers, residential buildings, and retail growth. Existing road networks are constrained, especially on routes accessing downtown, including Albert Street, Broad Street, Saskatchewan Drive, and Victoria Avenue. Widening or expanding vehicular capacity of these corridors is not possible. Increasing person-carrying capacity of corridors accessing the downtown is essential. This means shifting more people from single-occupant vehicles to modes that provide more effective use of road capacity. This includes transit but also ridesharing, cycling, and walking. More people travelling downtown in modes other than car will also reduce demand on constrained parking supply, ensuring that parking is available to the people who need it. A strong transit system is part of a progressive and competitive civic image. Cities across Canada have embraced transit to help address mobility challenges and congestion, particularly to and within city centres and downtowns.

February 2014

IBI GROUP DOWNTOWN TRANSPORTATION STUDY DIRECTIONS FOR TRANSIT IN DOWNTOWN REGINA Prepared for Prepared for City of Regina

3
3.1

Issues Identified
Roadway Network Constraints

There are several constraints within downtown Regina that limits routing options, particularly for east-west routing. Most routes provide require travel through the downtown in order to reach their destinations, reducing the need for transfers for many trips by providing direct, cross-town service. Of the four east-west corridors through the heart of downtown Regina, all have constraints: Saskatchewan Drive is a major artery for trips accessing, but primarily bypassing, the downtown. The corridor is heavily congested during peak periods with a high proportion of truck traffic. In addition, vehicular accesses into parkades and adjacent buildings limits space for transit stops, particularly in the eastbound direction. Finally, there are significant challenges in the pedestrian environment on Saskatchewan Drive due to heavy traffic, limited pedestrian amenity, and inactive ground levels of buildings. 11th Avenue is the downtowns main street, with a mix of retail, employment, and other uses. It is also the only street that provides a continuous east-west connection through the downtown core. As a result, there are many needs to be met on 11th Avenue, including vehicular travel, transit routing, loading and deliveries, heavy pedestrian demand, and building access. 12th Avenue was previously a major through street in downtown for eastbound traffic prior to two-way conversion of 11th and 12th Avenues. City Square plaza was constructed on 12th Avenue between Lorne Street and Scarth Street and currently does not allow for through traffic. Victoria Avenue is the southern limit of the downtown core, and like Saskatchewan Drive, serves as a key corridor for accessing and bypassing downtown. Traffic volumes are not as high as on Saskatchewan Drive; however, congestion is still observed during peak periods. Victoria Avenue also serves as the citys ceremonial boulevard and several major civic and historic properties are located on it, including City Hall, the Court House, Hotel Saskatchewan, and Victoria Park. Victoria Avenue is also located furthest from the main destinations of downtown centred on 11th Avenue and Hamilton Street.

These constraints create limitations to where transit can be routed through downtown Regina. North-south corridors, other than Albert Street and Broad Street, also present challenges due to heavy vehicle volumes and existing congestion. One-way operation of the north-south streets within downtown limits routing options and preserving on-street parking on these corridors is important for local business. Any routing utilizing north-south streets within downtown would still require the use of an east-west corridor (to fit within the existing network structure) and would therefore introduce additional turning movements by buses at busy intersections.

February 2014

IBI GROUP DOWNTOWN TRANSPORTATION STUDY DIRECTIONS FOR TRANSIT IN DOWNTOWN REGINA Prepared for Prepared for City of Regina

3.2

11th Avenue Issues

Traffic Congestion The existing routing of buses onto 11th Avenue is perceived and observed to create congestion on the street, particularly during busy periods that overlap with transit layovers at Cornwall Centre. Illegally stopped or parked vehicles during the peak periods aggravates congestion issues on 11th Avenue, as buses are required to enter general traffic lanes. However, outside of peak periods, vehicular volumes on 11th Avenue are lower and buses have little impact on traffic or on congestion. Site and Alley Access Affected property owners on 11th Avenue also raised access concerns where transit stops and stopped buses are temporarily impacting site entrances and alleys. Examples include the entry to the parking garage of the Bank of Montreal building and the alley to Cornwall Centre between Scarth Street and Hamilton Street. Some of these issues were directly related to the location of temporary bus stops prior to July 2013, when buses were not clearly designated for specific stop locations. The stacking of buses would block entrances for short periods of time. Following the placement of the new bus stops in July 2013, a section of the north sidewalk on 11th Avenue was blocked off due to construction near the Hudsons Bay store at the west end of Cornwall Centre. This also led to buses being unable to serve their designated stops. As of November 2013, these temporary issues are resolved and transit has reminded operators to keep accesses clear. Transit Stops Primary concerns from local business and property owners are concentrated at the location of bus stops on 11th Avenue at the transfer location near Cornwall Centre. Issues raised and observed at the stops include loitering within building entrances and lobbies, littering at bus stops, and increased congestion on sidewalks. Loitering and littering issues are issues directly related to the lack of amenities at newly designated bus stops on 11th Avenue there are no garbage receptacles, benches, or transit shelters. In addition, there are concerns regarding personal safety and security concerns at transit stops on 11th Avenue. However, the concerns raised, such as panhandling, public intoxication, and loitering, are observed in other areas of downtown Regina. These concerns must be dealt with on a downtown-wide scale and coordinated with social services, police, and other stakeholders. Off-Street Terminal Designating Cornwall Centre as the transit transfer location reflected preferences of transit customers, proximity to major destinations and businesses, and constraints at other locations in downtown Regina. An approach suggested by multiple stakeholders is for the implementation of a downtown transit terminal where transfers can be accommodated alongside improved amenities for transit customers. The key constraint for short-term implementation of a transit terminal is that there are no suitable locations currently owned by the city. However, the concept will be retained for medium- to long-term implementation following the identification of a suitable site and design.

February 2014

IBI GROUP DOWNTOWN TRANSPORTATION STUDY DIRECTIONS FOR TRANSIT IN DOWNTOWN REGINA Prepared for Prepared for City of Regina

3.3

Stakeholder Comments

Through the Downtown Transportation Study, the public, businesses, property owners, and other stakeholders were consulted to express their opinions, concerns, and ideas for downtown transit and transportation. Members of the public were consulted throughout Phase One of the Downtown Transportation Study and comments from transit customers were received through Regina Transit during the route review earlier this year. Most recently, a meeting was held with members of the Regina Downtown Business Improvement District (RDBID) on August 26, 2013, where business and property owners had an opportunity to express their concerns regarding transit in the downtown. Major comments received include: Businesses and property owners on 11th Avenue feel strongly against the routing of transit and placement of transit stops, particularly between Cornwall Street and Hamilton Street. There were significant concerns around negative impacts of transit transfers being accommodated at this location and the resulting loitering, littering, and traffic congestion. Property owners in the vicinity of 12th Avenue were previously vocal when the transit transfer location was behind City Hall, including noise impacts on nearby residential buildings. Transit customers have responded favourably to the current transfer location on 11th Avenue at Cornwall Centre, which provided easy access to local destinations and businesses. Property owners along Lorne Street have also expressed their non-support of a transit layover on that street between 11th Avenue and 12th Avenue, due to similar concerns at other locations.

The routing of transit, the siting of bus stops, and the location of the transfer point are of major concerns for stakeholders. Based on the discussions and feedback received, it is evident that there will be objections to wherever transit is located. Identifying and mitigating concerns and issues is recommended.

February 2014

IBI GROUP DOWNTOWN TRANSPORTATION STUDY DIRECTIONS FOR TRANSIT IN DOWNTOWN REGINA Prepared for Prepared for City of Regina

Downtown Transit Network

This chapter provides an overview of the options assessed for the routing of buses and the location of transit transfers in downtown Regina. This work was completed in support of Regina Transits network review process in early 2013 to provide a recommended routing of the transit network to take into account the needs of other elements of the Downtown Transportation Study. Additional considerations that warranted a review of the downtown transit network: The need to identify locations for enhanced transit stops downtown, which is a funded item in transits budget; Concerns regarding traffic impacts of buses on 11th Avenue, particularly with layovers at Cornwall Street; Accelerated deterioration of the asphalt roadway on 11th Avenue from bus operation, which requires a concrete substructure. This condition is not unique to 11th Avenue and similar issues would arise upon rerouting transit to another corridor. Maintaining two-way transit service on 11th Avenue; Establishing a second transit corridor through downtown Regina; and, Splitting transit service between Saskatchewan Drive and 11th Avenue.

Three alternatives were identified and assessed for transit networking routing:

February 2014

IBI GROUP DOWNTOWN TRANSPORTATION STUDY DIRECTIONS FOR TRANSIT IN DOWNTOWN REGINA Prepared for Prepared for City of Regina

4.1

Assessment Criteria

Seven criteria were identified to assess the network routing options, which are presented in Section 4.2. These criteria provide a holistic analysis of the various needs and considerations for transit in downtown Regina. Fit with Transit System: Any routing option must fit into Regina Transits planned network and system. Many of the systems routes provide cross-town travel. For example, Route 7/9 enters the downtown from the southwest and continues to serve to the east end. Consequently, this route needs to travel through downtown. Most routes are structured in this way and must be accommodated in any downtown network option. Travel Time: The network options will be assessed from a travel time perspective for transit and other road users. Travel time impacts are assessed utilizing the traffic model developed as part of the Downtown Transportation Study and can provide average peak hour travel time for transit vehicles as well as general auto travel. Property/Business Impacts: Each routing option would have impacts on adjacent properties and businesses, particularly with the location of transit stops. Considerations include site access points, building entrances, and compatibility with uses. Traffic Impacts: Congestion and traffic delay are cited as key concerns in downtown Regina. Each of the transit options will be assessed, using the traffic model, to quantify travel delay impacts on the overall network. On-Street Parking Impacts: parking and in particular, on-street parking, is considered important to support business in downtown Regina. Each routing option will have impacts on the availability and placement of on-street parking. Transit Customer Convenience: increasing the convenience of transit is essential to create an attractive travel choice for trips to and from downtown. Factors to be considered include proximity to major destinations and trip generators (for example, Cornwall Centre and major office towers), ease of transfers between routes, overall travel time, and citywide connectivity of routes. Operational Costs: Changes in routing that create delays or require circuitous routing would increase travel time for transit, which would consequently increase operating costs. Options that impact schedule reliability or increase pressure on Regina Transits constrained operating budgets are not favourable. Capital Implications: Changing transit routing could have capital impacts, such as the installation of new bus stops, resurfacing or reinforcing roadway structures, and roadway reconfiguration.

February 2014

IBI GROUP DOWNTOWN TRANSPORTATION STUDY DIRECTIONS FOR TRANSIT IN DOWNTOWN REGINA Prepared for Prepared for City of Regina

4.2

Routing Options

Two-Way Routing on 11th Avenue

This routing, shown in Exhibit 4.1, would see transit vehicles operating in both directions on 11th Avenue between Lorne Street and Broad Street. This is similar to the pre-existing routing prior to the July 2013 service changes and takes into account the route changes since implemented. All eastbound buses would travel east from Albert Street on 12th Avenue and north on Lorne Street to 11th Avenue. Westbound buses travelling north on Albert Street would continue on 11th Avenue past Smith Street.
Exhibit 4.1: Two-Way Routing on 11th Avenue

Two-way operation of the transit through downtown Regina on one corridor provides a simple and easy-to-understand network, particularly with the location of transfers at Cornwall Centre. This option fits well with the existing transit network. Transit stops would be located near the downtowns major trip generators, including Cornwall Centre and the office buildings centered around Scarth and Hamilton Streets. Implementation of the revised route structure in July 2013 reduced the peak hour volume of buses on 11th Avenue by 17%, improving overall traffic operations on the street. One of the greatest challenges of this option is the location of bus stops along a corridor with extensive ground floor uses. Existing stop locations create challenges with adjacent businesses; new stop locations will likely face similar opposition and concerns. Mitigating measures, such as improved stop amenities, shelters, and monitoring are essential.

February 2014

10

IBI GROUP DOWNTOWN TRANSPORTATION STUDY DIRECTIONS FOR TRANSIT IN DOWNTOWN REGINA Prepared for Prepared for City of Regina

On-street parking impacts are also a concern for this option and seen as a priority for local businesses. The operation of transit on 11th Avenue includes the use of a bus-only lane during peak periods, which removes on-street parking during these times. Transit stops also limit the amount of available on-street parking. Conversely, transit is negatively impacted by on-street parking, which requires buses to pull into and out of the curb lane to service bus stops. Illegal parking during peak periods aggravate congestion issues on the street. From an infrastructure perspective, the westbound lanes of 11th Avenue are constructed to support the running of buses with a concrete surface. This is a legacy from previous one-way operation of transit on 11th Avenue and 12th Avenue. The eastbound lanes are currently asphalt and are identified as requiring reconstruction if buses are to continue operating on 11th Avenue. However, Reconstruction and beautification of the corridor is identified in the Downtown Neighbourhood Plan and the Downtown Transportation Study as a medium term priority.

Additional Downtown Transit Corridor

This routing option, presented in Exhibit 4.2, would split downtown transit to travel onto two corridors through downtown Regina either via 11th Avenue or via Lorne Street and Victoria Avenue. The key outcome of this option would be a reduction in the number of buses travelling through the busiest section of 11th Avenue, between Lorne Street and Broad Street. Bus service would also be introduced to Victoria Avenue, which is not currently served by a high volume of buses.
Exhibit 4.2: New Transit Corridor on Lorne/Victoria

February 2014

11

IBI GROUP DOWNTOWN TRANSPORTATION STUDY DIRECTIONS FOR TRANSIT IN DOWNTOWN REGINA Prepared for Prepared for City of Regina

The key advantage to this option would be the reduction in the number of buses travelling on any one particular corridor by splitting volumes onto either 11th Avenue or Lorne Street-Victoria Avenue. Volumes on the most congested section of 11th Avenue, between Lorne Street and Broad Street, would be reduced by 50%. This would have positive effects on traffic congestion on 11th Avenue but offset by negative effects on Victoria Avenue with the introduction of bus service. Generally, this option fits into the citywide transit network by maintaining the east-west routing of buses through downtown Regina. This option would maintain transits proximity to destinations to 11th Avenue while improving access to the south end of downtown along Victoria Avenue. A central transfer location would also be maintained at Lorne Street and 11th Avenue with the potential of expanded transit amenities within the city-owned property on the southwest corner of the intersection. An off-street terminal was investigated for this location but the site was found to be too small. The greatest disadvantage of this option is the increased walk for some transit customers whose routes would be diverted to Victoria Avenue. The greater coverage of transit in this option may, however, also attract new riders who would be better served. Two-way conversion of Lorne Street would be required under this option between Victoria Avenue and Saskatchewan Drive. This may preclude recommendations in the Downtown Transportation Study to extend the Lorne Street bike lanes to 11th Avenue. The recent reconstruction of Lorne Street between 11th Avenue and 12th Avenue can accommodate twoway operation of buses. This option would require roadway improvements on non-reconstructed sections of Victoria Avenue, Lorne Street, and 11th Avenue in the medium to long term to support the ongoing operation of transit vehicles. This may be a significant capital expenditure; however, both Victoria Avenue and 11th Avenue are identified for streetscape improvements in the Downtown Transportation Study. Transit on Lorne Street and Victoria Avenue will likely reduce on-street parking on both streets to accommodate new bus stops and bus turning movements. Additional turning movements at the corner of 11th Avenue and Lorne Street would also trigger intersection geometry improvements.

Saskatchewan Drive and 11th Avenue

This routing option, presented in Exhibit 4.3, would split downtown transit to travel eastbound on Saskatchewan Drive and westbound on 11th Avenue. This would return transit to a similar arrangement to prior to the conversion of 11th Avenue and 12th Avenue to two-way streets by operating one a one-way couplet. However, unlike previous operation, Cornwall Centre creates a challenge as a key access for transit would be maintained through private property along the Cornwall Street and Scarth Street corridors, which do not run through to Saskatchewan Drive. This option would be advantageous in removing half of current bus volumes from 11th Avenue, but it would introduce buses onto the eastbound lanes of Saskatchewan Drive. However, many disadvantages and challenges exist in operating large volumes of buses on Saskatchewan Drive. From a transit customer perspective, the splitting of routes by direction onto two corridors is confusing, as return trips, for example, would be on a different street from the inbound trip. This option would also universally increase walking distance for all downtown-bound transit customers, as all major destinations are located south of Saskatchewan Drive. This option would not have a central transfer location and some transfers would require transit customers to walk through Cornwall Centre, which may be a challenge when the mall is closed to the general public. The pedestrian environment along Saskatchewan Drive is also challenging due to heavy traffic volumes, inactive building frontages, and a harsh microclimate.

February 2014

12

IBI GROUP DOWNTOWN TRANSPORTATION STUDY DIRECTIONS FOR TRANSIT IN DOWNTOWN REGINA Prepared for Prepared for City of Regina

Exhibit 4.3: Saskatchewan Drive/11th Avenue Routing

The south side of Saskatchewan Drive also presents major challenges for the placement of bus stops. Space is limited as a number of parkade and building accesses and ramps are off of the south side of the street. The remaining space that could accommodate a transit stop is a oneblock stretch of Saskatchewan Drive west of Hamilton Street alongside the Sears store; transit requires approximately two blocks of space to accommodate all buses. The greatest disadvantage of this option would be the traffic and congestion issues it would introduce to Saskatchewan Drive, which is heavily congested during peak periods. Modelling shows additional delays caused to transit and general traffic from this option. Intersection improvements would be required at Saskatchewan Drive and Albert Street and at Saskatchewan Drive and Broad Street to accommodate turning movements by transit vehicles and mitigate impacts on traffic flow. Reconstruction of the eastbound curb lane on Saskatchewan Drive to a concrete base would also be required in the medium term to accommodate transit vehicle operation.

Options Not Explored

An option that was not explored was the return to one-way operation for transit on 11th Avenue and 12th Avenue. City Square plaza was not designed to accommodate travel by transit buses and no routing alternative was available that could utilize 12th Avenue without increasing operating costs for transit.

February 2014

13

IBI GROUP DOWNTOWN TRANSPORTATION STUDY DIRECTIONS FOR TRANSIT IN DOWNTOWN REGINA Prepared for Prepared for City of Regina

4.3

Assessment of Route Options

Exhibit 4.4 presents the summary of the traffic analysis for each of the transit routing alternatives. Each alternative was tested within the traffic model developed for downtown as part of the Downtown Transportation Study. The analysis shows that the 11th Avenue two-way option provides the greatest benefits in terms of reducing total traffic delay during the peak period, as transit is travelling on a corridor that is primarily used for site access and not large volumes of through traffic. Alternative 3, which would introduce buses to Saskatchewan Drive, would result in the most negative impacts to traffic delay, with a 9% increase in delay compared to the 11th Avenue option. This is a result of the delay caused by stopped buses on a congested section of Saskatchewan Drive and by increasing turning movements by buses at Albert Street and Broad Street, which are heavily congested intersections. From a transit perspective, routing some buses via Lorne Street and Victoria Avenue would create travel time benefits, resulting in the least delay and competitive travel time. However, other traffic would be negatively impacted with the addition of transit traffic on Victoria Avenue and turning movements at the Lorne Street and 11th Avenue intersection.
Exhibit 4.4: Travel Time Performance of Transit Alternatives

Exhibit 4.5 provides a summary of the assessment based on transit-user impacts and reinforces the negative impacts of one-way transit operation on Saskatchewan Drive.
Exhibit 4.5: Transit Alternatives Assessment

Through the assessment of the three transit routing options, the continued operation of transit on 11th Avenue in both directions is recommended.

February 2014

14

IBI GROUP DOWNTOWN TRANSPORTATION STUDY DIRECTIONS FOR TRANSIT IN DOWNTOWN REGINA Prepared for Prepared for City of Regina

4.4

Transfer Location Options

11th Avenue Stop Consolidation

One of the concepts assessed as part of the recommended routing of transit was the consolidation of 11th Avenue bus stops to one location. Existing bus stops were located between the alleyway west of Cornwall Street and the alleyway east of Cornwall Street and east of Hamilton Street. Consolidating all bus stops on 11th Avenue to one location was proposed to reduce impacts on property owners, who had raised concerns regarding the location of the preexisting bus stops and provide for a single location to provide enhanced shelters and bus stops. The consolidation would also provide an opportunity for increased on-street parking along 11th Avenue. It would also reduce traffic impacts and transit travel times, as buses would only stop once on 11th Avenue.
Exhibit 4.6 11th Avenue Stop Consolidation Concept

While the transfer location has remained at Cornwall Centre, there is significant opposition from adjacent property owners to the new bus stop locations. The original proposal for bus stops between Cornwall Street and Hamilton Street was modified and the stops are now located from west of Cornwall Street to the alleyway east of Scarth Street. This report and the Downtown Transportation Study recommend a number of mitigating actions to address some of the concerns raised by businesses and property owners from the transit stops. These are summarized in Section 4.5 and Section 6.

Lorne Street On-Street Terminal

The use of Lorne Street between 11th Avenue and 12th Avenue was investigated for an on-street terminal to facilitate transfers and bus layovers. However, SaskTel, which is located on the east side of the street and property owners on the west side of the street have expressed opposition to the location of an on-street terminal at this location due to the impacts on building ventilation. It is recommended that this location be retained as part of a downtown transit terminal study to determine if the issues raised by these property owners can be confirmed and mitigated.

Future Transit Terminal

The Downtown Transportation Study recommends that a transit terminal be established in the city centre in the medium term. Detailed study to establish needs, benefits, and location of this terminal will be required.

February 2014

15

IBI GROUP DOWNTOWN TRANSPORTATION STUDY DIRECTIONS FOR TRANSIT IN DOWNTOWN REGINA Prepared for Prepared for City of Regina

4.5

Recommendations

The following is recommended as part of the review of the downtown transit network. Items that will require additional funding above current budgeted funds are highlighted. Maintain two-way routing of transit on 11th Avenue, which balances traffic impacts, transit quality considerations, and overall downtown accessibility. Continue to monitor impacts on traffic and make adjustments to network, schedules, and operations as necessary. Immediately provide improved stop amenities at bus stops on 11th Avenue and throughout downtown with seating and garbage receptacles. Regina Transit plans to install new garbage receptacles during the first week of November. Install enhanced transit shelters at bus stops on 11th Avenue with existing funding. Improved and more frequent maintenance and cleaning at bus stops throughout downtown. Funding for this initiative to be identified. Increase security patrols on 11th Avenue during business hours, coordinated with more frequent and visible Regina Police foot patrols. Funding for this initiative to be identified. Expand the hours of the downtown transit information centre to serve as a safe and weather-protected waiting area. Funding for expanded hours to be identified. Construct a downtown transit terminal, potentially linking to development in RRI and Warehouse District. A study in the short term is necessary to determine timing and needs, assess benefits, and identify a preferred site to protect for implementation. Funding for this study, property acquisition, and implementation need to be identified.

Further recommendations are provided in Section 6 of this report.

February 2014

16

IBI GROUP DOWNTOWN TRANSPORTATION STUDY DIRECTIONS FOR TRANSIT IN DOWNTOWN REGINA Prepared for Prepared for City of Regina

Downtown Transit Shuttle

Regina City Council directed in its meeting of July 29, 2013 to explore the feasibility of implementing a downtown transit shuttle to replace regular transit service within the downtown core. Transfers between regular routes and the shuttle service would take place on peripheral arterial streets (Albert Street, Broad Street, Saskatchewan Drive, and Victoria Avenue), with the intent of reducing the number of buses travelling along 11th Avenue. This section presents the findings of this feasibility study and includes: A review of downtown circulator services in other cities; The development of a downtown circulator concept for Regina; and, An assessment of the concept based on ridership potential, system impacts, fit with downtown, and costs.

5.1

Other Cities

Downtown transit shuttles, or transit circulators, are utilized in several cities across Canada and the United States to meet different objectives and have been employed with varying degrees of success. Notably, these services are rarely intended to reduce or replace existing transit services. Instead, they are seen as complementary and supplementary services to the citywide transit networks. Three Canadian cities were included in the review of downtown circulator services: The Downtown Spirit bus service in downtown Winnipeg; Free Rides Everywhere Downtown (FRED) in downtown Halifax; colobus in the historic district in downtown Quebec City; and,

The free downtown fare zone service provided on Calgarys CTrain on 7th Avenue was not included in the analysis, as its applicability to Reginas downtown is limited. The LRT service utilizes proof-of-payment for fares with random enforcement checks on vehicles upon leaving the free zone. Providing free service on regular service routes travelling within downtown Regina is impractical with the current fare system.

Winnipeg: Downtown Spirit bus

Winnipeg Transit introduced its Downtown Spirit bus in 2007 to supplement existing transit services and to help connect key downtown destinations. Winnipegs downtown is large, centered on a 1-kilometre radius from the main intersection of Portage and Main. As a result, walking distances are vast for trips within the downtown and the Spirit bus was designed to improve connectivity for local residents, workers, and tourists. The service is provided for free and some revenue is generated through on-board advertising oriented to downtown businesses. Currently, three Downtown Spirit routes operate throughout the downtown. Buses on the two main routes (Route 1 and Route 2) operate every 17 to 20 minutes, but generally only run during the midday and afternoon. Route 3 provides service between the University of Winnipeg and the Exchange District at a lower frequency than the other routes. Service is provided every 35 minutes, but runs with earlier and later hours than Route 1 and 2. Service is not provided on Route 3 on Sundays.

February 2014

17

IBI GROUP DOWNTOWN TRANSPORTATION STUDY DIRECTIONS FOR TRANSIT IN DOWNTOWN REGINA Prepared for Prepared for City of Regina

Exhibit 5.1: Winnipeg Downtown Spirit Service

The annual cost of operating Route 1 and Route 2 is approximately $660,000. Winnipegs Downtown BIZ (Business Improvement Zone) does not contribute to the operation of the service; however, it does play an active role in marketing and promotion. The Downtown BIZ also plays a major role in advocating for improved transit and multi-modal access to downtown Winnipeg. The routes connect to regular Winnipeg Transit service at several points throughout the downtown, including the key corridors of Portage Avenue, Main Street, and the Graham Street transit mall. The Downtown Spirit buses are not intended to replace transit services into and through downtown, but rather to improve access for downtown workers and residents, to discourage short auto trips within downtown (particularly during lunch hour), and to promote tourism. The Spirit service is well utilized largely due to the high concentration of workers and residents within Winnipegs downtown. The free service is also successful at attracting casual riders. Approximately 1,300 passengers board the Downtown Spirit buses each weekday.

Key Findings Service is successful, but is expensive Free service is highly attractive, particularly given the size of downtown Winnipeg Downtown shuttle does not replace existing services

February 2014

18

IBI GROUP DOWNTOWN TRANSPORTATION STUDY DIRECTIONS FOR TRANSIT IN DOWNTOWN REGINA Prepared for Prepared for City of Regina

Halifax: Free Rides Everywhere Downtown (FRED) Shuttle

In 1996, the Metro Transit, in partnership with the Downtown Halifax Business Commission, introduced the Free Rides Everywhere Downtown shuttle, also known as the FRED bus, to provide a free transit between major tourist attractions. The service also provided a link to the citys waterfront, which, at the time, did not have regular transit service. As a tourist-oriented service, FRED operated only during the summer between July and October. Service operated every 40 minutes, which is infrequent, compared to regular service routes in downtown Halifax, which operate as frequently as every 10 minutes. Hours were also limited, provided between 10:30 a.m. to 5:00 p.m.; however, service was provided daily. FRED did not replace existing transit services in downtown Halifax, which is well served by Metro Transit. Over 25 regular service routes serve Barrington Street, one of the downtowns main retail streets, with buses operating very frequently during the peak periods. Operating costs of the shuttle service were shared. Metro Transit paid for 70% of the costs, while the Downtown Halifax Business Commission contributed the remaining 30%. In its final year of service in 2010, FRED cost approximately $75,000 to operate annually. The service was discontinued after 2010 due to a combination of factors, including the high cost to the transit commission, duplication of regular service routes (particularly after the introduction of a new route to service the cruise ship terminal), and a lack of financial support from local businesses.

Key Findings Service is expensive to operate, lack of a lasting funding partner High frequency transit works, even on a narrow retail main street Shuttle was proposed for specific tourist market segment that does not exist in Regina

Quebec City: colobus

Operating since the summer of 2008, Quebec Citys colobus is a unique downtown circulator service that provides service throughout the historic district of Vieux-Qubec. colobus is comprised of a fleet of 10-seat electric buses that operate every 10 to 20 minutes and connect the modern city centre to the historic district. The colobus route connects to the main downtown bus terminal (Terminus DYouville) and travels through Vieux-Qubec to the ferry terminal at the lower part of the old city. Primarily oriented to tourists, the colobus is also well used by local residents. The service was introduced in response to concerns about walkability, traffic and congestion, and the operation of large public transit buses and tourist coaches along the winding and narrow historic streets. It was initiated as part of the Government of Canadas Urban Transportation Showcase Program (UTSP), which funded a number of sustainable transportation programs across the country. Project costs of approximately $8.6-million for a two-year trial operation were funded in partnership between the federal government, provincial government, and the City. Service was initially provided free of charge; however, a fare of $2 was charged following the start-up period, when the service was made permanent.

February 2014

19

IBI GROUP DOWNTOWN TRANSPORTATION STUDY DIRECTIONS FOR TRANSIT IN DOWNTOWN REGINA Prepared for Prepared for City of Regina

colobus operates with a fleet of 8 electric buses, each vehicle with a capacity of 20 standing and seated passengers. Four buses are used to provide peak levels of service (every 10 minutes) and additional buses are required due to the limited capacity of the electric batteries, which limits operation to approximately 5 hours before recharging. A special facility to store and charge the buses was required as part of implementation. colobuss introduction was in response to concerns similar to those in Regina regarding traffic and congestion impacts from full-size buses. However, unlike Regina, Vieux-Qubec has unique challenges, including a complex street pattern and challenging topography. Walking from the bus terminal to the ferry terminal involves a steep hill, stairs, or the use of a funicular. There is also a larger tourist market in Qubec City which relies on the service to help navigate confusing streets. In general, the service is perceived to be a success with ridership of approximately 850 daily. At busy times, the small size of the buses creates crowding and fleet availability limits flexibility and ability to expand capacity. The use of new technologies in electric buses has also created challenges with problems with the reliability of vehicle batteries. Regardless, the city is planning to continue the service, albeit potentially with different vehicles.

Key Findings Using state-of-the-art technology can create challenges for service reliability Use of small vehicles limits flexibility, particularly when there are surges in demand Project made possible with substantial seed funding Ridership driven by urban context, walking distances, and topography

February 2014

20

IBI GROUP DOWNTOWN TRANSPORTATION STUDY DIRECTIONS FOR TRANSIT IN DOWNTOWN REGINA Prepared for Prepared for City of Regina

Summary of Findings
The detailed review of three Canadian downtown circulator shuttles, as well as a general overview of other services across North America, offers important findings that are relevant when considering a similar service in downtown Regina. Key features identified as part of successful downtown circulators include frequent service, free (or low-fare) service, and support through unique branding and strong marketing efforts. Downtown transit shuttles are predominantly oriented for tourist travel or business promotion, not day-to-day travel. Most downtown shuttles are used to link major tourist attractions and city centre destinations. Schedules reflect an orientation to the casual travel market with infrequent service. In some cases, such as Winnipeg, the service is marketed for day-to-day travel due to the large geography of the city centre. While tourism in Regina is increasing, the market is too small to justify a circulator service. Downtown transit shuttles supplement and complement, and do not replace, regular routes. All downtowns face challenges in balancing the needs of transit and other modes of travel within narrow streets and congested roadways. Some cities have introduced transit shuttles to encourage use of parking lots in the periphery of city centres to reduce congestion within the core. However, with the exception of Quebec City, which has unique constraints, these services were not intended to remove transit from downtown streets. Shuttle services do not have the capacity to accommodate surges of commuter demand and the additional transfer and travel times make transit less convenient and attractive for commuters. Downtown transit shuttles are most effective in large downtowns or those with barriers for walking. The most successful services, in Winnipeg for example, operate in geographically expansive downtowns. Many transit shuttles operate infrequently; in order for shuttle services to be attractive, walking times must be similar or longer than the wait plus travel time. Topographic challenges such as steep hills or barriers to walkability can also make shuttles more attractive. Downtown Regina is small, laid out with a clear street network, and is relatively walkable. A transit shuttle would face challenges to be attractive in the current context; however, redevelopment in the Warehouse District and Regina Revitalization Initiative may generate future opportunities.

Exhibit 5.2: Size of downtown Regina, compared to case study cities

February 2014

21

IBI GROUP DOWNTOWN TRANSPORTATION STUDY DIRECTIONS FOR TRANSIT IN DOWNTOWN REGINA Prepared for Prepared for City of Regina

5.2

Potential Shuttle Service

Exhibit 5.3 illustrates a potential operational approach for a shuttle service in downtown Regina. All regular service routes would be rerouted to peripheral downtown streets, including Albert Street, Saskatchewan Drive, Broad Street, and Victoria Avenue. From stops located on these streets, passengers travelling into the downtown core would be required to either walk or transfer to a free downtown shuttle service. The proposed routing allows for transfers between all routes, except for Routes 1 and 5, on Victoria Avenue. Customers on Route 1 or 5 would have to transfer to the shuttle or walk from Saskatchewan Drive to transfer to most routes. These changes would add a high volume of bus turning movements to congested intersections at the four corners of downtown. It would also introduce bus service to corridors that currently are not served by transit, including Victoria Avenue and Saskatchewan Drive. A higher volume of buses would impact traffic flow and congestion on these streets. There may be an increase in the number of properties and businesses that would be impacted by the operation of a downtown shuttle due to the addition of new bus stops and associated impacts to on-street parking. New bus stops would be required on Victoria Avenue and Saskatchewan Drive and along the proposed shuttle route, illustrated in Exhibit 5.1.
Exhibit 5.3: Downtown Transit Network with Shuttle Service

February 2014

22

IBI GROUP DOWNTOWN TRANSPORTATION STUDY DIRECTIONS FOR TRANSIT IN DOWNTOWN REGINA Prepared for Prepared for City of Regina

Rerouting all buses onto Saskatchewan Drive was not considered due to two key factors: Space constraints, particularly on the south side of the street due to site and parkade access points, which would limit the number of buses that could use the street for a layover; and, Congestion on Saskatchewan Drive, which would impact reliability of transit service and travel time impacts for all other traffic.

In addition, substantial improvements to walkability and the pedestrian environment on Saskatchewan Drive are required to create a transit-supportive street. Modifications will also be required on Victoria Avenue in order to accommodate bus service, including new bus stops (which will require removal of on-street parking in several locations) and improving pedestrian infrastructure. Exhibit 5.4 illustrates the proposed downtown shuttle service. A single route, operating in a clockwise loop, would operate via Saskatchewan Drive, Hamilton Street, Victoria Avenue, and Lorne Street. One loop would take approximately 10 minutes to complete and two buses would be required to provide five-minute service during the peak periods and weekday midday. A single bus would operate to provide 10-minute service at all other times. Transfers to regular service routes would take place at new stops (indicated with a T) located on Saskatchewan Drive or Victoria Avenue. New transit stops would also be required on Lorne Street and Hamilton Street for the shuttle service, as illustrated in the exhibit.
Exhibit 5.4: Proposed Downtown Shuttle Service

February 2014

23

IBI GROUP DOWNTOWN TRANSPORTATION STUDY DIRECTIONS FOR TRANSIT IN DOWNTOWN REGINA Prepared for Prepared for City of Regina

Vehicles
One of the parameters requested for the evaluation of a shuttle service was to utilize a smaller transit vehicle. Currently, Regina Transit operates three main types of vehicles: Forty-foot conventional buses are the predominant vehicles in the fleet. Each bus carries 35 to 38 seated passengers with a maximum capacity of approximately 55 passengers per bus. By the end of 2014, all of Regina Transits standard-sized buses will be low-floor and fully accessible with two wheelchair spaces per bus. Thirty-foot conventional buses are also operated by Regina Transit on lower volume routes. Each bus carries 30 seated passengers and are fully accessible. Shuttle buses are operated by Regina Transit and similar vehicles are outfitted for use on conventional service in several cities across Canada. These buses generally cost less than conventional buses, but have shorter expected life spans. These buses are currently operated by Regina Transit on Routes 14, 15, and 16.

One of the main objectives of the downtown transit shuttle study was to remove larger, forty-foot buses from the downtown core. Consequently, the following three vehicle options were assessed from a capital cost and operating perspective: thirty-foot conventional bus; shuttle transit vehicles outfitted for conventional service; and, electric vehicles, similar to Quebec Citys colobus.

Exhibit 5.5: Downtown Shuttle Vehicle Options

30-foot bus

Shuttle bus

Electric bus

February 2014

24

IBI GROUP DOWNTOWN TRANSPORTATION STUDY DIRECTIONS FOR TRANSIT IN DOWNTOWN REGINA Prepared for Prepared for City of Regina

5.3

Capital Costs

Regina Transits fleet is currently fully utilized during peak periods and additional vehicles and capital expenditures will be required to operate a downtown shuttle service. As a result, capital expenditures to establish a downtown shuttle service would be directed to purchase new vehicles. Two buses are required to operate the downtown shuttle service with a 5-minute frequency during the peak periods and midday on weekdays. One bus would operate the service at a 10minute frequency at all other times. In total, three buses would be purchased for the paratransit and standard bus options, including one additional bus to serve as a spare vehicle. For the colobus option, 6 buses would be required in order to facilitate switch-offs for battery recharging every 5 hours with an estimated recharge time of 8 hours Exhibit 5.5 provides a summary of the capital and startup costs for a downtown shuttle using electric (colobus), paratransit, or 30-foot buses. The highest costs are associated with the electric bus, due to the cost of the technology and the need for new charging and storage facilities. The paratransit bus is the lowest capital cost option; however, the vehicles have the shortest service life span. Other costs included for implementation and common to all options include: development of a detailed service plan; new bus stops, shelters, and amenities; and, marketing and promotion ($50,000 start up and $25,000 annually).

The start-up capital costs, in 2013 dollars, are estimated between $65,000 and $3,650,000.

Exhibit 5.6: Estimated Capital Costs (2013 dollars)

colobus Cost per Bus Storage and Charging Capacity Propulsion Total Buses Required Vehicle Life Span Capital Costs Vehicles Detailed Service Strategy New Stops/Shelters Start-up Marketing and Promotion Total $450,000 $675,000 20 electric 6 8 years $3,375,000 $50,000 $175,000 $50,000 $3,650,000

Shuttle Bus $130,000 Not required 19 diesel 3 4 years $390,000 $50,000 $175,000 $50,000 $665,000

30' Standard Bus 375,000 Not required 30 diesel 3 12 years $1,125,000 $50,000 $175,000 $50,000 $1,400,000

February 2014

25

IBI GROUP DOWNTOWN TRANSPORTATION STUDY DIRECTIONS FOR TRANSIT IN DOWNTOWN REGINA Prepared for Prepared for City of Regina

5.4

Operating Costs

An equally important consideration in assessing the viability of a downtown shuttle service is the ongoing operating cost of the service. The shuttle is intended to provide free service; consequently, the full cost of the service will need to be funded by either the city or through partnerships with local businesses, the Regina Downtown Business Improvement District (RDBID), and other funding partners. Operating costs for the service were developed based on existing Regina Transit operating costs as reported to the Canadian Urban Transit Association. This data reflects the 2011 operating budget, escalated to current 2013 dollars. In 2011, the marginal operating cost for each additional hour of bus service in Regina is approximately $72. The use of smaller transit buses was proposed as part of the proposal of the downtown shuttle service. However, it is a common misconception that the utilization of smaller buses for lower ridership routes results in reduced transit operating costs. In general, the cost of operating a bus is predominantly comprised of the driver, so smaller buses only produce some savings from reduced fuel consumption. Conversely, operating larger vehicles on busy routes is shown to create savings, as more people are carried on fewer vehicles. Introducing new vehicle types to a fleet also creates increased maintenance costs due to the added training for mechanics and the need to stock different spare parts. For the purposes of quantifying the fuel savings of using smaller vehicles for the downtown shuttle, a 20% reduction in the marginal operating cost is assumed and the hourly cost is $58 per service hour. For the colobus option, which operates on electricity, a further reduction of 25% in operating costs is assumed and forms part of the calculation of overall costs in the next section. Exhibit 5.7 summarizes the service periods, frequency, service hours, and incremental operating cost by service day for the downtown transit shuttle concept. Service hours do not include deadhead time, or the time required to enter and leave service from the transit garage. Service is assumed to operate every 5 minutes between 6:00 a.m. and 6:00 p.m. on weekdays and every 10 minutes at all other times. Total weekly service hours are 182 hours, or approximately 9,500 hours annually. This represents approximately 3% of Regina Transits annual service hours in 2011 (275,000 hours). Using the $58/hour marginal operating cost, the annual cost of operating the downtown transit shuttle is estimated to be $548,912 (in 2011 dollars). Assuming no fare recovery on the shuttle service, this would require a 4% increase in Regina Transits gross operating budget or substantial subsidy or partner funding.

February 2014

26

IBI GROUP DOWNTOWN TRANSPORTATION STUDY DIRECTIONS FOR TRANSIT IN DOWNTOWN REGINA Prepared for Prepared for City of Regina

Exhibit 5.7: Estimated Shuttle Service Operating Costs (for all options)

Period Weekday AM Peak Midday PM Peak Early Evening Late Evening

Time

Frequency

Total Buses

Total Service Hours

Incremental Operating Cost

6:00 am to 9:00 am 9:00 am to 3:30 pm 3:30 pm to 6:00 pm 6:00 pm to 9:30 pm 9:30 pm to Midnight

5 min 5 min 5 min 10 min 10 min

2 2 2 1 1

6 13 5 3.5 2.5 150

$348 $754 $290 $203 $145 $8,700

Weekday Subtotal - Per Week Saturday Early AM Daytime Evening 6:00 am to 9:00 am 9:00 am to 6:00 pm 6:00 pm to Midnight 10 min 10 min 10 min 1 1 1

3 9 6 18

$174 $522 $348 $1,044

Saturday Subtotal Sunday Early AM Daytime Evening 8:00 am to Noon Noon to 6:00 pm 6:00 pm to 10:00 pm 10 min 10 min 10 min 1 1 1

4 6 4 14 182 9,464

$232 $348 $232 $812 $10,556 $548,912

Sunday Subtotal Weekly Total Annual Total (2011$)

February 2014

27

IBI GROUP DOWNTOWN TRANSPORTATION STUDY DIRECTIONS FOR TRANSIT IN DOWNTOWN REGINA Prepared for Prepared for City of Regina

5.5

Overall Costs (2014-2025)

The implementation of the downtown transit shuttle cannot be considered as a trial project as it would create significant changes to how the transit system operates in Regina with major impacts on transit customers, physical infrastructure, and travel patterns. Consequently, consideration is necessary of the proposals life-cycle costs over a 10-year period. This time horizon was chosen to reflect an appropriate period at which further changes to the transit network may be required due to growth or other changes. The analysis assumes that service begins operation in 2014. All capital and operating costs in the analysis are escalated at a rate of 2.5% per annum. Totals reflect the net present value in 2014 dollars, with a discount rate of 5% applied. The total capital costs of each option reflect the renewal of vehicles at the end of service life. For colobus, vehicles are replaced once in 2022. For paratransit bus, vehicles are replaced twice in 2018 and 2022. A standard bus does not require replacing during the evaluation period. Exhibit 5.7 provides a summary of the total cost over the 2014 to 2025 period. It shows significant costs to provide a downtown shuttle service; the paratransit and standard bus options would cost approximately $7.1-million while an electric bus system would cost approximately $10.9-million.

Exhibit 5.8: Total Cost 2014-2025 by Vehicle Option (2014 dollars)

colobus Operating Cost Capital Cost Startup and Annual Marketing Cost Total $4,453,000 $6,012,000 $477,000 $10,942,000

Paratransit Bus $5,938,000 $694,000 $477,000 $7,108,000

30' Standard Bus $5,938,000 $732,000 $477,000 $7,147,000

Summary Operation of a downtown shuttle would require significant capital and operating investment. Due to limitations of the existing transit fleet, the new vehicles are required at a cost of approximately $700,000 for diesel vehicle options and $6.0-million for electric vehicle options. However, the greatest cost is in the operation of the service, which, at approximately $550,000 per year, would create major budgetary pressures.

February 2014

28

IBI GROUP DOWNTOWN TRANSPORTATION STUDY DIRECTIONS FOR TRANSIT IN DOWNTOWN REGINA Prepared for Prepared for City of Regina

5.6

Assessment

Ridership Transfers are considered the most onerous part of a transit trip as it adds significant travel time and uncertainty. Timed transfers, such as the system utilized in Regina, reduce the uncertainty, but are still perceived as inconvenient by transferring passengers while increasing travel time for passengers who are not transferring. A downtown transit shuttle would create an additional transfer for passengers going to downtown from either Saskatchewan Drive or Victoria Avenue. Due to the relatively short walking time into the downtown core, many customers would likely avoid the wait, transfer, and added travel time of the shuttle service and walk to their destinations. There is also substantial risk that the added overall travel time and inconvenience would discourage the use of transit altogether to downtown. Ridership loss among customers who have a car but currently choose to take transit is likely, as driving to and walking from a lower-cost peripheral downtown parking lot would ultimately be more attractive than transit. This may create greater parking supply issues in the downtown and consequently more congestion on downtown access routes. Travel times for transit users travelling downtown would be negatively impacted by forcing transfers to a downtown shuttle service or a walk to their final destination. Exhibit 5.8 provides an example of how travel times for transit customers would be impacted for a trip on Route 30 from Normanview Crossing to 11th Avenue and Hamilton. The wait time as part of the transfer to the downtown shuttle is assumed to be half the planned frequency of 5 minutes, or 2.5 minutes.
Exhibit 5.9: Change in Transit Travel Time (Normanview Crossing to 11th Avenue and Hamilton)

Existing In-vehicle Travel Time Transfer Time (walk + wait) Shuttle Travel Time Walk Time Total Travel Time Change in Travel Time 15 minutes 15 minutes -

Shuttle Service 15 minutes 3.5 minutes 5 minutes 23.5 minutes + 8.5 minutes (+ 57%)

Walking 15 minutes 4 minutes 19 minutes + 4 minutes (+ 27%)

The transfer to the shuttle service would increase total travel time on transit for the sample trip by 8.5 minutes, while walking to the destination from Victoria Avenue would increase travel time by 4 minutes. Proportionally, these are significant increases in travel time by 57% and 27%, respectively. The change in travel time would create substantial negative impacts on the attractiveness of transit, and consequently ridership, in downtown Regina. Currently, approximately 6,000 boardings per weekday are observed at stops downtown. Transit staff estimate approximately 35% of these trips are transferring passengers, which would generally not be impacted by the relocation of the transfer point to Saskatchewan Drive or Victoria Avenue. Of the remaining 3,900 trips that originate from the downtown core, it is projected that: 10% of these would utilize the shuttle service (approximately 400 boardings); 80% would walk (approximately 3,100); and, 10% would no longer take transit (approximately 400).

February 2014

29

IBI GROUP DOWNTOWN TRANSPORTATION STUDY DIRECTIONS FOR TRANSIT IN DOWNTOWN REGINA Prepared for Prepared for City of Regina

Traffic Impacts The rerouting of regular transit services onto the peripheral streets of downtown Regina is predicted to have negative impacts on traffic conditions, particularly on Saskatchewan Drive, which is a major arterial and through corridor for trucks and other general traffic. A traffic analysis was conducted for a downtown transit routing option that included eastbound-only operation of transit on Saskatchewan Drive. This analysis showed a significant increase in overall travel time for all travel in downtown of approximately 9%. A downtown transit shuttle would introduce transit in both directions on Saskatchewan Drive and would have greater congestion impacts. The shuttle option and rerouting of service would also introduce significant bus volumes onto Victoria Avenue, which also operates as a major through corridor (although at a lesser magnitude than Saskatchewan Drive). Buses on this corridor, particularly with turning movements at Broad Street and Albert Street, would increase congestion and traffic flow. To accommodate the placement of new bus stops, on-street parking on Victoria Avenue, currently allowed in both directions at all times, would need to be reduced. In addition, parking and stopping restrictions would need to be utilized during peak periods to mitigate traffic impacts. Rerouted buses on the peripheral arterials would increase turning movements at intersections operating over capacity on Albert Street and Broad Street, particularly at Saskatchewan Drive and at Victoria Avenue. Turning movements for all traffic would be negatively impacted and delayed and further exacerbate concerns about access to and from downtown. Removing buses from 11th Avenue and the continuation of no parking, no stopping in the curb lanes during peak periods will remove one element of congestion. However, like today, there will still be other elements to impact traffic flow on 11th Avenue, including on-street parking, servicing and loading, and access to alleys. Increased congestion on Saskatchewan Drive and Victoria Avenue may induce through-traffic to utilize 11th Avenue as a bypass, negating any beneficial effects. Business and Property Impacts Removing buses on 11th Avenue would address concerns by businesses on 11th Avenue. However, the same issues and concerns would be relocated to new corridors served by transit, including those with heavy storefront presence, such as Hamilton Street. Property owners on Saskatchewan Drive, Lorne Street, and Victoria Avenue would also have similar concerns to those on 11th Avenue. Increased traffic on Victoria Avenue in the vicinity of Victoria Park is also perceived as incompatible with civic, cultural, and recreational uses.

February 2014

30

IBI GROUP DOWNTOWN TRANSPORTATION STUDY DIRECTIONS FOR TRANSIT IN DOWNTOWN REGINA Prepared for Prepared for City of Regina

5.7

Summary of Findings
Reginas downtown is geographically compact and walking times are too short for a shuttle service to be attractive for transferring transit customers or downtown workers and residents. Compared to other cities that operate downtown shuttles, downtown Regina is substantially smaller; however, future development in as part of Regina Revitalization Initiative and in the Warehouse District may create a footprint more suitable for a shuttle service. A downtown shuttle service is cost prohibitive, requiring substantial start-up capital and ongoing operational investment. Regina Transit operational budget is constrained and does not have sufficient funding to operate the downtown shuttle service. There would be greater benefit to transit, downtown access, and traffic congestion to invest an equivalent amount into improving transit service to make it more attractive and competitive. Rerouting transit service to downtowns peripheral arterials which serve as major thoroughfares for downtown and citywide travel Saskatchewan Drive, Albert Street, Broad Street, and Victoria Avenue would create traffic flow and congestion impacts. Travel times and delays are projected to increase for all travellers, particularly at the downtowns key gateway intersections, which are all operating at or over capacity. Transit riders to downtown would be negatively impacted with increased total travel time and less convenient access to downtown destinations. Transit riders would be forced to transfer to the shuttle bus or walk to get to their final destinations. This is in addition to the walk that most transit customers have to get to the bus stop at their point of origin. This makes transit less attractive and creates risk for ridership loss. Less transit use downtown could lead to increased congestion and impact overall accessibility to and from downtown. The issues and concerns by business and property owners on 11th Avenue are valid and must be addressed. Moving transit, however, is not a viable solution, as it simply relocates the same issues and concerns to a new group of business and property owners. Confirming the recommended routing on 11th Avenue will provide the certainty needed to invest committed capital funds to create high quality bus stops and amenities. The uncertainty around transit routing and stop locations partially contributed to the delay in implementing these improvements. There is significant risk in changing the transit network, particularly soon after the last major change to the network in July 2013, which is yielding positive results. Transit customers have expressed preference to the current routing and the Cornwall Centre transfer location and ridership has increased.

The following provides a summary of key findings:

February 2014

31

IBI GROUP DOWNTOWN TRANSPORTATION STUDY DIRECTIONS FOR TRANSIT IN DOWNTOWN REGINA Prepared for Prepared for City of Regina

5.8

Recommendations
A transit shuttle service is not recommended for downtown Regina at this time. The service provides limited benefit and ridership potential, is cost prohibitive, and would have negative impacts to transit customers and traffic flow downtown. The downtown is too small to justify a special service; confining transit to the arterial roads on the peripheral arterials would lead to less attractive service and risk ridership loss. Retain the idea for a shuttle service to support development in the City Centre. As the downtown and surrounding area grows, particularly as envisioned in the Official Community Plan, a circulator transit service may be desirable to connect the downtown to the Warehouse District, Regina Revitalization Initiative, and the new stadium at Evraz Place. The Route 15 Heritage route operates similarly to a downtown circulator geared towards local travel in the city centre with connections to key attractions, such as the Science Centre, Wascana Centre, Cathedral, and downtown. It is currently operated as a regular service route. Marketing and promotion of this route to visitors or for local travel, potentially with fare incentives, may be desirable.

February 2014

32

IBI GROUP DOWNTOWN TRANSPORTATION STUDY DIRECTIONS FOR TRANSIT IN DOWNTOWN REGINA Prepared for Prepared for City of Regina

6
6.1

Recommendations
Short Term Recommendations
Maintain transit routing on 11th Avenue and continue to monitor impacts Immediately implement improved bus stop amenities including garbage receptacles and benches Expand security patrol on 11th Avenue to business hours (10:00 a.m. to 9:00 p.m.) and coordinate with Regina Police to increase visibility of foot patrols at all hours throughout downtown with a focus on 11th Avenue Install new enhanced transit shelters Review route assignments at transit stops to locate busiest routes where there is the most space and less busy routes where there are more constraints Expand the opening hours of the Transit Information Centre to serve as a safe and weather protected waiting area with next vehicle arrival prediction displays Construct a downtown transit terminal, potentially linking to development in RRI and Warehouse District. A study in the short term is necessary to determine timing and needs, assess benefits, and identify a preferred site to protect for implementation. Funding for this study, property acquisition, and implementation to be identified. Include consideration of partnerships with development proposals in the downtown and integration with Saskatchewan Transportation Commission (STC) facilities Assign a Regina Transit member to serve as a Downtown Transit Liaison to feed into Downtown Transportation Working Group Explore operational adjustments to reduce layover time at Cornwall Centre transfer point on 11th Avenue during peak periods to reduce traffic impacts Continued implementation of Transit Investment Plan system strategy to increase use of transfer nodes outside of downtown

6.2

Long-Term Recommendations
Build transit needs into the revitalization of 11th Avenue Explore potential for a City Centre Circulator transit service to serve the downtown, Warehouse District, Regina Revitalization Initiative, Evrazplace, and surrounding neighbourhoods

February 2014

33