Activetransportationfunctionalplan

Prepared for
Halifax Regional Municipality

P.O. Box 1749
Halifax, Nova Scotia
B3J 3A5
Consulting Services for
Active Transportation Plan
Prepared by
SGE Acres Limited
In association with
Marshall Macklin Monaghan
Go For Green
August 2006
H016692
Halifax Regional Municipality Active Transportation Plan
Table of Contents
Executive Summary ................................................................................. i
1 Introduction.....................................................................................1-1
1.1 Project Objective and Scope..................................................... 1-1
1.2 Active Transportation Defined................................................. 1-4
1.3 Why Pursue An AT Plan For HRM?........................................ 1-5
1.4 Vision, Goals and Objectives ................................................... 1-8
1.5 Regional Municipal Planning Strategy (MPS) ....................... 1-12
1.6 Related HRM, Province of Nova Scotia and
Partner Initiatives ................................................................... 1-21
1.7 Provincial Capital Works Projects ......................................... 1-28
2 Existing and Expected Future Conditions ..................................2-1
2.1 Introduction .............................................................................. 2-1
2.2 Movement Systems and Land Use Patterns ............................. 2-1
2.3 Visitor Profile, Tourist Attractions and Destinations ............... 2-6
2.4 Gateways .................................................................................. 2-9
2.5 Barriers and Problem Areas ................................................... 2-10
3 Framing the Active Transportation Plan .....................................3-1
3.1 Introduction .............................................................................. 3-1
3.2 Provincial Statutes.................................................................... 3-1
3.3 HRM Design and Construction Standards ............................... 3-5
3.4 Consultation Findings .............................................................. 3-8
4 Recommended Network ................................................................4-1
4.1 Introduction .............................................................................. 4-1
4.2 The Network Concept .............................................................. 4-1
4.3 Network Development Approach and Objectives.................... 4-4
4.4 Route Selection Principles and Evaluation Criteria ................. 4-7
4.5 Facilities Description.............................................................. 4-11
4.5.1 Facility Design .......................................................... 4-11
4.5.2 Operational Design.................................................... 4-12
4.5.3 Crime Prevention Through Environmental Design
(CPTED) ................................................................... 4-13
4.6 The Regional and Community Network................................. 4-15
4.6.1 Overview ................................................................... 4-15
4.6.2 The Primary System .................................................. 4-16
4.6.3 The Community System............................................ 4-19
4.6.4 Neighbourhood and Community Connectivity ......... 4-20
4.6.5 Off-Road Facilities.................................................... 4-21
4.6.6 Benefits of the Recommended Active Transportation
Network..................................................................... 4-22
4.6.7 Comments On Rails-With-Trails............................... 4-24
5 Recommended Implementation Tasks And Schedule ..............5-1
5.1 Introduction .............................................................................. 5-1
5.2 Implementing The Plan ............................................................ 5-1
5.3 Phasing ..................................................................................... 5-2
5.4 Network Priorities .................................................................... 5-2
5.5 Policies, Trail By-Law and Municipal Standards
Recommendations .................................................................... 5-6
5.5.1 Policy Recommendations ............................................ 5-6
SGE Acres Limited – Marshall Macklin Monaghan Limited – Go For Green

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5.5.2 Enact A Trail By-Law ................................................. 5-6

5.5.3 Technical Recommendations ...................................... 5-7
5.6 Human Resources..................................................................... 5-7
5.7 Partners, Land Ownership and Asset Management.................. 5-8
5.8 Funding Mechanisms ............................................................. 5-10
5.8.1 Own-Source............................................................... 5-10
5.8.2 HRM and Partner Funding Commitments................. 5-11
5.9 Probable Capital Costs, Maintenance and Financial
Considerations ........................................................................ 5-11
5.10 Educational and Promotional Campaign Framework............. 5-13
5.11 Environmental and Related Impacts....................................... 5-14
5.12 Liability and Risk Management ............................................. 5-15
5.13 Monitoring.............................................................................. 5-16
Appendix A - HRM Reports and Literature Review: Benefits of

Active Transportation
Appendix B - Regional Municipal Planning Strategy: Summary Of
Settlement Designation
Appendix C - Summary of Province of Nova Scotia Statutes
Appendix D - Draft Trail By-Laws
Appendix E - Technical Recommendations
Appendix F - Recommended Educational and Promotional
Campaign Framework
List of Exhibits
Exhibit 1.1 Existing and Previously Planned AT Routes and Facilities

Exhibit 1.2 Methodology Overview
Exhibit 1.3 Typical Benefits of An Active Transportation Plan
Exhibit 1.4 Victoria Transportation Policy Institute – 2004 Research
Findings
Exhibit 1.5 Active Transportation Plan Objectives
Exhibit 1.6 Projected Housing Demand By Type and Sub-Region, 2001-
2026
Exhibit 1.7 Generalized Future Land Use
Exhibit 1.8 Future Transit and Transportation
Exhibit 1.9 Settlement and Transportation
Exhibit 1.10 Trails and Natural Networks
Exhibit 1.11 Parks and Natural Corridors
Exhibit 1.12 Bicycle Plan and Network Implementation
Exhibit 1.13 Regional Trails System
Exhibit 1.14 Halifax Urban Greenway
Exhibit 2.1 Halifax Region Economic Geography
Exhibit 2.2 Halifax Region Tourism Economic Profile
Exhibit 2.3 Halifax Region Visitor Profile

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Exhibit 2.4 Barriers and Destinations

Exhibit 3.1 HRM Existing Road Hierarchy
Exhibit 3.2 Summary of Consultation Input
Exhibit 4.1 Network Development Process Chart
Exhibit 4.2 Route Selection Evaluation Criteria
Exhibit 4.3 Proposed AT Zones: Pedestrian Infrastructure
Exhibit 4.4 Proposed AT Routes: Cycling And Trails
Exhibit 4.5 Proposed Network Facility Designation
Exhibit 4.6 Proposed Facilities: Rural Commuter Centres
Exhibit 4.7 Proposed Facilities: Rural Commuter District Centres
Exhibit 4.8 Proposed Facilities: Rural Commuter Local Centres
Exhibit 5.1 Implementation Priorities By Phase
Exhibit 5.2 Recommended Implementation Schedule
Exhibit 5.3 Network Facility Designations With Land Ownership
Exhibit 5.4 Network Development – Preliminary Estimate Of Probable
Costs

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Executive Summary
In 2005, SGE Acres Limited, in association with Marshall Macklin
Monaghan and Go For Green, were retained by the Halifax Regional
Municipality (HRM) to prepare a plan, polices and standards manual for an
Active Transportation (AT) network 1 . The SGE Acres Team reported to a
Steering Committee that included representatives from HRM and the
Province of Nova Scotia. The scope of work for the project includes:
• An Active Transportation Network Plan for the urban, suburban and rural
areas for both on-road and off-road facilities.
• A Phased Implementation Plan that includes cost estimates.
• Active Transportation Policies that adhere to the Regional Municipal
Planning Strategy (MPS) and foster an increased level of non-motorized
movement 2 .
• A framework for an educational and promotional campaign.
For the Halifax Region, Active Transportation is defined by four categories.

They are:
• Active Commuting which involves journeys to and from work.
• Active Workplace Travel which includes trips during working hours such
as the delivery of materials or attending meetings.
• Active Destination Oriented Trips which includes trips to and from school,
shops, visiting friends and running errands.
• Active Recreation which involves the use of an AT mode for fitness or

recreational pursuits, such as hiking or cycling.
The challenges facing implementation of the Active Transportation Plan in

Halifax Region are many. They include unique features (such as the
geography of the municipality and historic settlement patterns) and sedentary
lifestyles associated with a service and knowledge-based economy.
Residents engaged in these types of economic activities do not necessarily
require physical activity in their day-to-day schedules. The overall result is
that residents are less active, pollution from vehicular use is on the rise and
unhealthy lifestyles are increasing.
A central goal of the Active Transportation Plan is to double the number of

people who use AT modes for a portion of their entire trip, particularly for
utilitarian (commuting) purposes. To achieve this goal, a hierarchy of routes
1
In this report, HRM refers to the Municipality and Halifax Region means the geographical area within the corporate
unit’s boundary.
2
For this report, Draft 2 (November 30, 2005) of the Regional MPS was used.

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and facility types is recommended to appeal to a wide range of skill levels

and includes:
• Off-Road Multi-Use Trails

• Sidewalks
• Signed-Only Cycling Routes
• Bicycle Lanes
• Paved Shoulders on Arterial and Higher Volume Collector Roads or Rural
Roads.
As these routes and facilities are implemented, an educational and

promotional campaign is required to increase existing and potential new user
awareness. It is expected that as users of the network become more
comfortable using the range of expanding facilities and connections over the
20-year implementation period (coordinated with the Regional MPS), users
will gain the skill, knowledge and confidence to lengthen their trips by AT
modes. They will also “graduate” in their choice of routes and facilities by
moving from quiet streets or corridors to walking and cycling on or along
multi-lane roads, riding with traffic on urban roads or walking and cycling on
paved shoulders on rural roads. The intent is that more people will choose
more often to assume an Active Transportation mode of travel and reduce
their current dependence on the private automobile.
A network concept is recommended that includes a hierarchy of routes and

facility types. These include:
• A Primary “Spine” System

• A Secondary “Community” System.
The primary and secondary systems are further broken down into two
segments, a pedestrian system and a cycling network. While AT is
comprised of additional modes beyond cyclists and pedestrians, these two
modes act as the “design” modes as all other modes of AT fall into one of
these two categories. Cycle based facilities are examined and proposed as a
network of routes while pedestrians based facilities are proposed as a system
of zones with the density of pedestrian facilities varying with density of
development and surrounding uses.

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1 Introduction
1.1 Project Objective and Scope
In 2005, SGE Acres Limited, in association with Marshall Macklin

Monaghan and Go For Green, were retained by the Halifax Regional
Municipality (HRM) to prepare a plan, polices and standards manual for an
Active Transportation (AT) network. The SGE Acres Team reported to a
Steering Committee that included representatives from HRM and the
Province of Nova Scotia.
The scope of work for the project is defined in Request For Proposals 05-
017. The purpose of the Active Transportation Plan is to increase the
demand for non-motorized movement by building upon the existing system
(on-road and off-road pedestrian, trail and cycling facilities) and linking the
existing systems together in an integrated network that also supports transit
use. The existing and previously planned Active Transportation routes and
facilities are presented in Exhibit 1.1. Increasing usage of the network will
require programs to promote, educate and encourage more people of all ages
to choose AT modes of transportation more often.
The overall goal of the project is to create a well-connected, safe and

functional Active Transportation Plan. The SGE Acres Team was instructed
by the Steering Committee to follow an integrated system approach to the
preparation of the AT Plan that included the involvement of the general
public, community trail groups and other interests. The scope of work for
Cyclist on Spring Garden the project includes:
Road.
• An Active Transportation Network Plan for the urban, suburban and rural
areas for both on-road and off-road facilities.
• A Phased Implementation Plan that includes cost estimates.
• Active Transportation Policies that adhere to the Regional Municipal
Planning Strategy (MPS) and foster an increased level of non-motorized
movement 3 .
• A framework for an educational and promotional campaign.
The Active Transportation Plan is not about restricting the use of motor
vehicles for transportation and recreation. Rather, it is about enhancing
choice and opportunities for multi-modal travel and recreation that promotes
physical activity and healthy lifestyles for all ages.
3
For this report, Draft 2 (November 30, 2005) of the Regional MPS was used.

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Exhibit 1.1
Existing and Previously Planned AT Routes and Facilities

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The research methodology contains features that are different from

traditional approaches to transportation systems, facility planning and design.
The traditional approach focuses on meeting demand (existing and expected
future) based upon established norms and standards. Active Transportation
focuses on creating demand for non-motorized movement by offering
residents and visitors to the Halifax Region alternatives to private motorized
vehicles for commuting, workplace travel, other destination oriented trips
and leisure time pursuits. The key features of the methodology include an
assessment of resident and visitor non-motorized movement needs in 2006
and 2026 (20-year horizon) in the context of changing land uses, existing and
planned transportation networks and planned capital budgets of HRM and
the Province of Nova Scotia. All of these inputs are framed by the Regional
MPS which supersedes 18 Municipal Planning Strategies and 15 Secondary
Planning Strategies (which will all be collectively referred to as Secondary
Planning Strategies as per Section 8.1.1 of the Regional MPS) which have
guided land use planning since amalgamation in 1996.
Exhibit 1.2
Methodology Overview
Vision, Goals & Objectives
Existing Changing Needs: Expected Future

Conditions (2006) -Land Use Conditions (2026)
- Population
- Employment
-Tourism
- Transportation
-Infrastructure
Regional MPS
HRM & Province

Capital Project Priorities
HRM Active
Transportation
Plan
The report contains five sections plus appendices. Section 1, Introduction,

defines AT and summarizes its benefits. This section also presents the
vision, goals and objectives for the AT Plan selected by the Steering
Committee and summarizes the Regional MPS. Section 2, Existing and
Expected Future Conditions, describes the movement systems and land use
patterns in the Halifax Region that will influence the AT network. Section 3,
Framing the Active Transportation Plan, summarizes existing policies and
legislation and other strategic initiatives to provide a context for the AT
network and supporting policies and programs. Section 4, Recommended
Network, contains a map of the recommended network (primary and
community) that is supported by discussions of the network development

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approach, route selection principles and evaluation criteria. Section 5,

Recommended Implementation Tasks and Schedule, includes discussions on
policies and municipal standards, priority actions (system links, nodes and
facilities), phased development, land ownership, probable costs (capital,
maintenance and funding considerations), education and promotion,
environmental impacts, liability and risk management.
The appendices section includes related and background material. Appendix

A includes a literature review and a list of reports that include elements of
Active Transportation in the Halifax Region. Appendix B contains a list of
settlement designations under the Regional Municipal Planning Strategy.
Appendix C summarized Province of Nova Scotia statutes that will influence
or frame the Active Transportation Plan. Appendix D is the Draft Trail By-
Law and Appendix E contains the technical recommendations. Information
in Appendix D and E is also included in the companion document, Technical
Appendix: Facility Planning, Design Guidelines and Draft Trail By-Law.
1.2 Active Transportation Defined
Active Transportation (AT), by definition, is any form of self-propelled

(non-motorized) transportation that relies on the use of human energy such as
walking, cycling, inline skating and jogging. These modes can utilize on-
road and off-road facilities (sidewalks, bike lanes, multi-use trails) and may
also be combined with public (land and water) transit, especially for trips to
and from work, shopping and entertainment areas, school and other
community facilities like recreation centres.
For the Halifax Region, Active Transportation is defined by four categories.

They are:
• Active Commuting which involves journeys to and from work.
• Active Workplace Travel which includes trips during working hours such
as the delivery of materials or attending meetings.
• Active Destination Oriented Trips which includes trips to and from school,
shops, visiting friends and running errands.
• Active Recreation which involves the use of an AT mode for fitness or

Active Transportation recreational pursuits, such as hiking or cycling.
includes any type of non-
motorized transportation
In addition to the four categories, any portion of a trip that involves non-
and offers significant
health and motorized transportation modes is considered a form of Active
environmental benefits. Transportation. In this context, AT involves maximizing the use of active
modes and methods of travel and reducing the dependence on motorized
modes that include private automobiles, motorcycles and all terrain vehicles
(ATV’s).

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1.3 Why Pursue An AT Plan For HRM?
Many benefits will result from implementing an Active Transportation

system in the Halifax Region. The recommendations in Sections 4 and 5 are
intended to provide different age groups in urban, suburban and rural settings
with transportation alternatives to the private automobile. The result will be
a healthier and fitter population and a more integrated active recreation
system for residents and tourists. Less reliance on the private automobile
will also reduce commuting, workplace travel and destination oriented trip
congestion and costs, with the resulting environmental benefits. Benefits
that can result from the AT Plan are summarized in Exhibit 1.3. These
benefits include a more fit and productive population, less traffic congestion,
less air and noise pollution and more efficient land use. Appendix A
includes a more detailed review of the benefits based upon experiences in
other urban centres in Canada, academic research and other professional
literature sources.
The challenges facing implementation of the Active Transportation Plan in

Halifax Region are many. They include unique features (such as the
geography of the municipality and historic settlement patterns) and sedentary
lifestyles associated with a service and knowledge-based economy.
Residents engaged in these types of economic activities do not necessarily
require physical activity in their day-to-day schedules. The overall result is
that residents are less active, pollution from vehicular use is on the rise and
unhealthy lifestyles are increasing.
There is a consensus opinion by health care professionals, urban planners

and other professionals that the Halifax Region requires an action plan to
promote a more active lifestyle for a larger segment of the population in an
environmentally and financially sustainable manner. The academic and
professional literature on Active Transportation in other areas provides
valuable insights on the type of network that is required from the
neighbourhood to regional level to provide residents and tourists with
acceptable alternatives to the private automobile.
In order to capitalize on the desire for active living with a large segment of
the population, the literature shows that it is necessary to integrate Active
Transportation options into daily activities as a practical alternative to
driving. According to the organization “Active Living By Design”,
transportation options for daily movement are directly linked to rates of
physical activity. People who have access to a sidewalk are 28% more likely
to be physically active while people who have access to walking or jogging
areas are 55% more likely to be active. 4 Considering that these facility types
are more prevalent in urban areas, it is understandable that achieving the
recommended 30 minutes of daily physical activity needed to maintain
fitness levels is easier achieved in urban settings.
4
CFLRI, National Survey on Active Transportation, Go for Green. 2004.

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Exhibit 1.3
Typical Benefits of An Active Transportation Plan
Category Benefits
Health and Less Obesity: According to the 2004 Canadian Community Health Survey (CCHS), obesity rates for youth (aged 12-17)
Fitness and adults have risen from three to nine percent and from 14% to 23% respectively from 1978/79 to 2004.
More Physical Activity: Twenty-five percent of the population in the Halifax Health Region is physically active and 48%
is inactive. Physical inactivity costs the Nova Scotia health care system (estimate) $66.5 million per year with the impact
on all direct health costs being $107 million with the costs to HRM being $44.7 million and $68 million respectively.
Less Disease: Thirty-six percent of heart disease, 27% of osteoporosis, 20% of stroke, hypertension, type 2 diabetes and
colon cancer, and 11% of breast cancer are attributed to physical inactivity. According to a 2004 report by The Heart and
Stroke Foundation of Nova Scotia, 200 people die prematurely each year due to physical inactivity in HRM.
Less Productivity Loss: Physical inactivity costs the Nova Scotia economy an additional $247 million per year in indirect
productivity losses due to premature death and disability. The direct and indirect cost of physically inactivity is estimated
at $354 million annually.
Transportation Less Traffic Congestion: According to the Massachusetts Institute of Technology, a road can carry up to 12 times as
many people per hour by bicycle than by automobile and up to 20 times the volume of pedestrians. Each motor vehicle
trip increases delays experienced by other vehicles and the economic costs of vehicles and people delayed in traffic.
Lower Road Construction and Maintenance Costs: Roadway maintenance costs increase with the size, weight and
speed of a vehicle and traffic volumes experienced. Greater motor traffic volumes often necessitate continuous roadway
expansions. According to a 1996 report in Victoria, B.C., widening a two lane urban arterial to four lanes can cost in the
range of $1.3 million per kilometre.
Improved Road Safety: According to a 2003 research study, fatality rates per trip and per kilometre are significantly
higher for locations with low bicycle and walking shares of total travel.
Less Demand For Parking Spaces: The parking area required for one automobile is approximately 20 times as great as
for one bicycle and far less flexible in terms of location availability.
Environmental Lower Air Pollution: According to Transport Canada, road transportation accounts for 70% of transportation related
greenhouse gas emissions with 45% originating from light cars and trucks. Short distance motor vehicle trips are the least
fuel-efficient and generate the most pollution per kilometre. The national environmental costs of motor vehicle use are
estimated at $14 to $36 billion annually (1997).
Lower Noise Pollution: Disturbances and possible health risks are associated with automobile noises and the existence of
even a few hundred vehicles per day on residential streets can have a significant affect on property values according to
research published by the American Planning Association.
More Efficient Land Use: According to the Institute of Transportation Engineers, automobile dependant urban
development patterns are very land intensive and typically require three times as much space as pedestrian oriented
communities.
Sources:
1. Adult Obesity in Canada: Measured Height and Weight and Overweight Canadian Children and Youth, Statistics Canada online catalogue 82-620-
MWE2005001, 2005.
2. Colman, Ronald, The Cost of Physical Inactivity in Nova Scotia, 2002, prepared for Recreation Nova Scotia and Sport Nova Scotia. Available at
www.gpiatlantic.org.
3. Colman, Ronald and Walker, Sally, The Cost of Physical Inactivity in Halifax Regional Municipality, 2004, prepared for The Heart and Stroke Foundation
of Nova Scotia.
4. Technology Review, Massachusetts Institute of Technology, May/June 1990.
5. Public Benefits in the Victoria Region, 1996.
6. Jacobsen, “Safety in Numbers,” Injury Prevention, 2003.
7. Transport Canada, 1997 Sustainable Development Strategy.
8. Gordon Bagby, “The Effects of Traffic Flow on Residential Property Values,” Journal of the American Planning Association, January 1980.
9. James Hunnicutt, “Parking, Loading, and Terminal Facilities,” in Transportation and Traffic Engineering Handbook, Institute of Transportation
Engineers/Prentice Hall, 1982.

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In suburban and rural areas, physical activity can require significant planning
and is very difficult for many people to achieve as a result of the time needed
for other required daily activities such as shopping or traveling to work. This
does not mean that a desire for Active Transportation alternatives does not
exist. A 2004 report by the Victoria Transport Policy Institute (If Health
Matters) identified a high level of interest in cycling and walking across the
country. 5 According to this report, a large portion of the population will
support increased spending on bicycle facilities especially those used for
daily workplace commuting. These findings indicate a significant latent
demand for non-motorized travel that could be satisfied if suitable facility
conditions and acceptable travel distances were provided as viable options to
the private automobile.
Exhibit 1.4
Victoria Transportation Policy Institute – 2004 Research Findings
Question Cycle Walk
Currently use this mode for leisure and recreation 48% 85%
Currently use this mode for transportation 24% 58%
Would like to use this mode more frequently 66% 80%
Would cycle to work if there “were a dedicated bike lane which would take me 70%
to my workplace in less than 30 minutes at a comfortable pace.”
Support for additional government spending on bicycling facilities 82%
Source: If Health Matters, Integrating Public Health Objectives in Transportation Planning.
The literature confirms that the building block of an active recreation,

commuting and destination oriented trip system must be
neighbourhoods. The system must extend to the neighbourhood level where
walkers, cyclists, and other mode users, can easily access the “roots” of the
network and gradually work their way through the branches to their
destinations. The more developed links of the network can then provide
passage to and from common destinations such as work, home, shopping and
other destinations. Overall, attracting new users to AT modes requires
providing practical links from residential areas to transit facilities,
major employment districts, major shopping areas, and significant
community features such as schools and recreational facilities. In this
way, more residents are served by the network and the reasons for
driving are reduced. For tourists, the links must be from major hotel
areas to entertainment areas and other attractions.
It is also important to consider the distance that potential new users will
travel as an alternative to the private automobile. According to a study
completed by Ontario’s Region of Peel using 1996 Statistics Canada census
data, the median one-way commuting distance by mode was 7.1 kilometres
using public transit and 2.8 kilometres for cycling. Setting these distances
against the urban form and development pattern of the Halifax Region
illustrates some significant points.
5
T. Litman, If Health Matters Integrating Public Health Objectives in Transportation Planning, Victoria Transport
Policy Institute, 2004, page 11.

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It is not realistic to expect an average new cyclist to travel as great a distance

as he or she may via automobile for a daily commute to work and back (or
from accommodation for tourists). Assuming a median distance of 3.0
kilometres for cycling, then the more important destinations for the AT
Plan become transit terminals, especially those with bike lockers, in
order that communities such as Sackville and Cole Harbour are able to
make Active Transportation part of their commute but are not
burdened by an unrealistic distance to travel to final destination
employment areas. The same idea applies to the linking of rural trailheads
and trail systems with populated centers (within 3.0 kilometres), in order that
recreational users can also make a seamless trip directly to their destination.
In terms of the overall AT Plan, recreational destinations do not offer as
much potential for daily use of the system however, their overall importance
to the system should not be overlooked.
The distance that a typical resident of HRM will walk for active
workplace travel and destination oriented trips (such as to and from
school, shopping and running errands) is another important
consideration. The past experience of the SGE Acres Team is the
“tipping point” between walking and driving is 500 to 600 metres. For
the AT Plan, 550 metres has been selected.
Another consideration is how far a typical resident will walk to a bus stop or
a transit facility. The literature provides an answer to this question. The
comprehensive 2001 National Household Travel Survey suggests Americans
who walk to and from public transit facilities or bus stops have an average
(mean) physical activity time of 19 minutes 6 . While this study is U.S. based,
it does indicate the need to focus the AT Plan on effective links to transit
facilities within a 20 minute walking distance (10 minutes each way) to
The involvement of capture up to 50% of the targeted population. Beyond a 25 minute walk, the
youth in Active number of transit users drops significantly. The average person walks 50
Transportation is metres per minute which translates into a 500 metre distance to a transit
essential to meeting the
facility or stop. Taking into consideration an overall aging population during
20-year goals of HRM.
the 20-year implementation period, a 550 metre tipping point is a reasonable
distance.
1.4 Vision, Goals and Objectives
The Steering Committee selected a Vision (preferred future) for the Active
Transportation Plan that provides guideposts for the recommendations in
Sections 4 and 5. The Vision is to:
“Develop a region-wide, visible and connected Active Transportation

network of on-road and off-road facilities that are convenient, accommodate
the needs of existing and future users and promotes an increase in non-
6
Besser, Lilah and Dannenburg, Andrew. Walking to Public Transit, American Journal of Preventative Medicine,
Volume 29, November 4, 2005.

1-8
motorized vehicle travel, particularly for short distance trips. This network
will be supported by various programs, policies and strategies that will help
and encourage Active Transportation year-round, and improve the quality of
life for both residents and visitors to the area and make HRM one of the most
desirable municipalities in which to live, work and visit in North America.”
Framed by the Vision, the Steering Committee selected three major goals for
the Active Transportation Plan. They are:
1. Build upon existing and previously proposed initiatives, such as the

Blueprint for a Bicycle Friendly HRM (2002) by connecting and
expanding upon existing cycling, pedestrian and multi-use trail facilities
in HRM to establish a complete, integrated and readily accessible region-
wide network serving urban, suburban and rural areas.
2. Double the number of person-trips by Active Transportation modes

within 20-years by encouraging more people to choose Active
Transportation modes more often for both utilitarian and
recreational/fitness purposes.
3. Make conditions for walking, cycling and other modes of Active

Transportation safer for all users regardless of skill level and age by
providing conveniently located, appropriately spaced and well-designed
on-road and off-road cycling, pedestrian and multi-use trail facilities,
while promoting Active Transportation as a healthy lifestyle choice and
also educating all transportation modes (cyclists, motorists, etc.) on safe
operating practices.
Within the context of the Vision and major goals, the SGE Acres Team
prepared a set of objectives to guide the Active Transportation Plan. They
are illustrated in Exhibit 1.5 and summarized in the remainder of this section.

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Exhibit 1.5
Active Transportation Plan Objectives

1-10
Objective: Develop a Connected Region-Wide Active Transportation

Network Plan
A continuous network must be created that overcomes barriers and creates

links among communities within the Halifax Region; while at the same time
promoting connections to surrounding municipalities. It is important to
create a seamless, clearly marked and signed network, featuring linkages to
the existing and planned system of pedestrian sidewalks, as well as on-road
and off-road cycling routes and multi-use trail facilities.
Objective: Develop Planning and Design Guidelines for Active

Transportation (Pedestrian and Cycling) Routes and Facilities
A stand-alone network and typical design solutions are not enough. The AT
Plan must address design issues that are appropriate and work for HRM yet
are still within reasonable industry accepted standards.
Objective: Review Active Transportation Promotion, Education

Programs and Supporting Facilities
The AT Plan should review existing outreach efforts by the HRM and its
partners and recommend improvements to both content and delivery.
This objective should include educating road users, including pedestrians,

cyclists, inline skaters and motorists on intersection policies, right-of-way
policies, signing plans, parking and end-of-trip facilities and promotion.
Objective: Develop a Formal Set of Active Transportation Policies
The AT Plan should review existing polices that relate to Active

Transportation including those in past planning documents and recommend
new policies where warranted to support implementation.
Objective: Define the Priorities and Develop an Implementation

Strategy to Integrate Long-Term Road, Bikeway, Sidewalk and Trail
System Planning in the Halifax Region
Priorities for implementation will be established. These priorities should be

in combination with an understanding of capital project forecasts that will
allow for the development of an effective implementation plan that considers
a management structure, planned capital projects and at the same time
recognizes network development “where the users want to be”.

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Objective: Develop the Financial Costs of Establishing a “Tiered” Active

Transportation System
Everyone needs to know what the system costs. A realistic calculation of

network development costs plus the cost of other programs including
education programs and end-of-trip facilities and promotion will be
developed, to be implemented over the longer term.
1.5 Regional Municipal Planning Strategy (MPS)
The Halifax Regional Municipality has prepared a new Regional Municipal

Planning Strategy (MPS) for a 20-year time frame. It represents the first new
regional planning strategy since the Halifax-Dartmouth Regional
Development Plan of the mid 1970s. The new Regional MPS covers all
amalgamated municipalities that form the Halifax Region while the 1970s
document focused on the urban and suburban core.
The document contains strategies and policies to establish a pattern of

intended growth. It includes provisions on topics ranging from effective land
use and infrastructure planning, maintaining quality of life, promoting
economic development and environmental protection. Guided by extensive
input from citizens, the Regional MPS is an important document and speaks
directly to Active Transportation.
The Regional Plan (November 2005) states,
“Active, healthy lifestyles can be achieved when walking, cycling or other

active transportation modes are part of everyday activities such as the trip to
work. Urban centres with mixed-uses and pedestrian oriented streets
encourage people to use non-motorized modes of transportation. The
Regional MPS will help create pedestrian oriented centres with sidewalks
and bicycle routes.
Active transportation can assist in managing traffic by reducing the number

of motor vehicles on the roads. There are also important air quality benefits
associated with walking and cycling. They must be treated as an integral
part of the HRM transportation system, with appropriate facilities and
supportive programs.” 7
There is an intention to promote AT modes and system connections

throughout the Halifax Region and to integrate the Active Transportation
Plan into broader regional policy directives. These policy areas include:
• Urban Design
• Parks and Open Space Development
7
HRM Regional Plan Draft #2, November 2005, Section 4.3.3, Active Transportation Functional Plan.

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• Conservation and Environmental Management

• Transit
• General Transportation
• Mixed-Use Development
• Trail Acquisition
• Halifax Harbour Shoreline Development
• Growth Management.
All of the recommendations in Sections 4 and 5 are framed by the overall

intent and specific policy statements in the new Regional Municipal Plan
Strategy. 8 (For a detailed listing of settlement designations and policy
statements, see Appendix B.)
The Regional MPS will directly impact upon the location and type of future
development and land uses. The application of the cohort survival
methodology to population forecasting indicates that the population of the
Halifax Region should increase by 84,400 over the period from 2001 to
2026 9 . This baseline scenario is between a high growth scenario (125,000)
and a low growth scenario (52,000). Projected trends indicate that
employment will grow while people participating in the workforce will
decline. The age distribution will also shift toward a larger percentage of the
population over 65 years. The demographers who prepared the forecasts
expect changes in the age profile and ethnic mix of the Halifax Region’s
population by 2026. In comparison to conditions in 2001, the percentage of
the population aged 65 years and over will more than double while average
annual immigration will increase from 750 to 3,500. 10
A key feature of the Regional MPS is the distribution of growth among a

new hierarchy of urban, suburban and rural centres that are surrounded by
trails, natural networks, parks and natural corridors. About one-quarter of
the predicted growth will occur within the Regional Centre which is defined
as Peninsular Halifax and Downtown Dartmouth within the Circumferential
Highway. Outside of this core, 50% of the growth will be directed to
suburban areas and 25% to rural areas.
Exhibit 1.6
Projected Housing Demand By Type and Sub-Region, 2001 – 2026
Sub-Region Single & Semis Row Apartments & Total
Others
Urban 3,428 1,715 9,911 15,054
Suburban 18,851 735 11,013 30,599
Rural 11,996 - 1,101 13,098
Total 34,275 2,450 22,025 58,750
Source: Table 1-2, Halifax Regional Planning Strategy, December 2005.
8 HRM Regional Plan Draft #2, November 2005.

9
HRM Regional Plan Draft #2, November 2005, Section 1.1.1, Population Growth.
10
HRM Regional Plan Draft #2, November 2005, Section 1.2.1, Economy and Employment.

1-13
Settlement and transportation are integrated under the Regional MPS as a

transportation network will be developed that blends road construction and
maintenance with transit facilities, Active Transportation and other
alternative modes of transportation. A hierarchy of centres will be linked by
transit services that vary by classification and location. As the new Plan
states, “The integration of transportation and land use planning will avoid
future transportation costs, balance road construction with transit provision
and encourage alternatives to automobile use”. 11
There are five urban-type designations:
• Regional Centre
• Urban District Centres
• Suburban District Centres
• Urban Local Centres
• Suburban Local Centres.
The form of new development will be more compact with a greater emphasis
on neighbourhood within walking distance to commercial areas and transit
facilities. Where feasible, community centres and surrounding
neighbourhoods will contain an interconnected system of streets, pathways,
sidewalks and bicycle lanes.
Prior to the new Plan, HRM designated three suburban sites for new mixed
use communities. They are Bedford South, Bedford West and
Morris/Russell Lake. These areas are part of the Urban Settlement
Designation where transit oriented and mixed use urban centres will be
developed over the next 20-years.
The new Plan also contains Rural Settlement Designations that define the
form of growth within the rural areas of the Halifax Region. There are three
rural designations:
• Rural Commuter
• Rural Resource
• Agricultural.
The Rural Commuter designation encompasses rural communities within

commuting distance of the Regional Centre which are significantly
influenced by suburban-type residential development. The intent of this
designation is to focus low to medium density uses within specific centres.
Three classifications (Rural Commuter Centre, Rural Commuter District
Centre, Rural Commuter Local Centre) are included in the new Plan.
11
HRM Regional Plan Draft #2, November 2005, Chapter 1, Page 10.

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The Rural Resource designation includes traditional resource-based

communities along the Eastern Shore while the Agricultural designation
includes agricultural lands in the Musquodoboit Valley.
It is the intention of HRM to prepare planning strategies for all centres within
Rural Settlement Designations. Prior to the preparation of these secondary
plans, a Comprehensive Development District Zone will be applied to certain
lands as an interim land use management control. Upper Tantallon and Fall
River are noted in the new Plan as special circumstances because of
opportunities and constraints. The new Plan concludes that Upper Tantallon
Cyclist and walkers on Cow has more favourable conditions for development (soils, direct access to 100
Bay Road. Rural as well as
series highway system, potential servicing with central water services) while
urban and suburban
communities are an Fall River has poorer soils and contains the Shubenacadie Lakes that are
important element of the sensitive to potential pollution loading.
Plan.
Aspects of the Regional MPS that directly relate to Active Transportation are
illustrated in Exhibit 1.7 (Generalized Future Land Use), Exhibit 1.8 (Future
Transit and Transportation), Exhibit 1.9 (Settlement and Transportation),
Exhibit 1.10 (Trails and Natural Networks) and Exhibit 1.11 (Parks and
Natural Corridors). These maps show that the new Plan depends upon the
integration of land use and transit, and the design of communities that
accommodate alternative modes of transportation and less driving. The new
Plan concludes that compact and mixed use development that is designed to
facilitate walking and access to transit can occur in most urban, suburban and
rural centres. While the scale and type of development will vary by
community, design guidelines will address a number of factors that directly
relate to Active Transportation, including:
• Interconnected streets with trees, sidewalk and pedestrian priority leading

directly to transit stations and schools.
• Cycling networks that include bicycle facilities such as wide curb lanes or
bicycle lanes (where feasible) that offer direct and safe routes to
employment, shopping and transit.
• Creatively designed and integrated parking which balances the needs of

those who must drive with walking.
• Transit facilities designed and located to be the focal point of other uses
and within a convenient walking distance. 12
12
HRM Regional Plan Draft #2, November 2005, Section 3.1.1, Urban Settlement Designation.

1-15
Exhibit 1.7
Generalized Future Land Use

1-16
Exhibit 1.8
Future Transit and Transportation

1-17
Exhibit 1.9
Settlement and Transportation

1-18
Exhibit 1.10
Trails and Natural Networks

1-19
Exhibit 1.11
Parks and Natural Corridors

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1.6 Related HRM, Province of Nova Scotia and Partner Initiatives
HRM, the Province of Nova Scotia (Department of Health Promotion and

Protection and others) and many partners are involved in aspects of Active
Transportation. This section reviews these past and current initiatives.
Active and Safe Routes To School Program
There are a number of present and past initiatives that have addressed Active
Transportation in the Halifax Region in various ways. One of these is the
Active and Safe Routes to School Program delivered by the Ecology Action
Centre. It has been successful in raising awareness of AT for school-aged
children and in promoting policies that encourage the development of
physical infrastructure and supporting programs. The Active and Safe
Routes to School Program is a national initiative that encourages students to
walk, bike or use other human-powered modes of transportation to travel to
and from school. The stated benefits of the program include: increased
physical activity, less traffic congestion around schools and neighbourhoods,
safer streets and improved air quality. Specific projects under the program
have included:
• The Walking School Bus and the Biking School Bus that encourage
supervised AT modal use for children traveling to and from school.
• A no idling zone for cars around schools.
• Central school bus pick up and drop off points to encourage walking to the
bus as well as improving bussing efficiency.
• Advocating for infrastructure policy changes such as the installation of

speed bumps, sidewalks and other pedestrian friendly features.
The Active and Safe Routes to School Program is funded by the Province of
Nova Scotia through its Active Kids, Healthy Kids initiative administered by
the Department of Health Promotion and Protection. This initiative was
announced in 2002 as a blueprint to help promote increased physical activity
levels, improve health and prevent disease. It acts with the stated purpose to
“increase the number of children and youth who accumulate at least 60
minutes of moderate or higher-intensity physical activity on a daily basis”.
TRAX
The Ecology Action Centre’s TRAX program focuses on promoting public

transit, cycling, walking, carpooling, rollerblading, vanpooling or any
combination of modes that support sustainable transportation. TRAX works
toward these goals by encouraging workplace trip reduction programs,
infrastructure improvement and public education and outreach with the aims

1-21
of reducing greenhouse gas emissions, enhancing air quality and promoting

the health of all citizens of Nova Scotia and beyond.
TRAX is funded by the Province of Nova Scotia as well as Environment

Canada and non-governmental organizations.
Other Supporting Groups
The Halifax Region has a number of other organizations that work to

promote health and active living. Many of these groups are cited in this
document at various times. Noteworthy government and nonprofit
organizations are the Department of Health Promotion and Protection, the
Heart and Stroke Foundation and Clean Nova Scotia.
The Blueprint for a Bicycle Friendly HRM (Bicycle Plan)
HRM laid some of the groundwork for the Active Transportation Plan by
adopting the Bicycle Plan in 2002. Support facility recommendations
include bicycle parking, way-finding and signage, showers and changing
facilities, road conditions (sewer grates) and transit/intermodal connections.
The Bicycle Plan illustrates some of the current issues in each of these areas
such as bicycle-unfriendly sewer grates, the lack of bicycle parking for
public events in the downtown core and the need for connections to rail and
bus terminals.
In terms of safety, promotion, education and enforcement, the Bicycle Plan

lists existing events such as Ride to Work day and the Commuter Challenge
that could act as showcase events. Other recommendations address how
HRM and partners could review bicycle collision statistics and create “rules
of the road” documents for motorists. Enforcement recommendations
include working with Halifax Regional Police and the RCMP to increase the
use of their bicycle registry.
The Bicycle Plan’s recommended bicycle network implementation map is

presented in Exhibit 1.12.

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Exhibit 1.12
Bicycle Plan Network Implementation

1-23
Metro Transit Strategy
The future of transit in the Halifax Region is outlined in the 2002 Metro
Transit Strategy which summarizes the goals and objectives of the
organization and contains an overall strategy for transit services.
The Metro Transit Strategy makes specific mention of providing more

services to high schools and universities as well as “rapid-bus” services for
longer distance commuters (the “MetroLink” program). The document also
discusses the construction of new transit terminals in community shopping
and residential focal points, the maintenance of park-and-ride programs for
rural communities and a bus fleet that is more accessible to people with
disabilities. All of these initiatives are supportive of recommendations in the
AT Plan to provide for inter-modal commuting and focus on new facilities
around community centres such as schools and shopping areas.
In terms of direct bicycle interface with transit, the Metro Transit Strategy
identifies a need to increase secure bicycle locker facilities at terminals and
racks on the front of buses. The MetroLink program provides bike racks on
all buses for this limited stop, premium service. Additionally, all new
MetroLink buses, purchased by Metro Transit, will be equipped with bike
racks.
Specific objectives are included to increase ridership from 13 to 16 million.

To achieve this target, annual per capita ridership must grow from 40 to 50
trips, peak market share from six to eight percent and the number of bus-
hours operating annually from 480,000 to 600,000. Some new ridership will
come from population growth with at least half of the increase resulting from
a modal shift from the private automobile. These targets are being achieved
ahead of schedule. They are complimentary to the vision, goals and
objectives of the AT Plan to facilitate a shift from standard commuter and
recreational car use toward non-motorized modes in conjunction with public
transit. The Metro Transit Strategy also recognizes differences between
urban, suburban and rural areas as well as employment and other destinations
within the Halifax Region. In this context, the strategy is complementary to
the AT Plan as it provides for a more seamless transit and AT experience
across much of the Halifax Region.
Bedford to Downtown Halifax Fast Ferry Project (Harbour Link)
In 2004, HRM announced funding for plans to explore the development of a

high speed ferry service from the Bedford Waterfront to Downtown Halifax.
The Harbour Link route was tested for possible wake-wash issues and in
2005, HRM requested Federal Government infrastructure cost sharing
assistance.

1-24
Both the MetroLink and Harbour Link initiatives can be effectively

integrated into the AT Plan and share many similar goals and objectives.
When viewed as part of an inter-modal system, they can reduce commuting
times and encourage more residents to make Active Transportation a part of
their daily routine.
HRDA Regional Trails Project
The Halifax Regional Development Agency (HRDA) prepared a Regional

Trails Project that outlines potential off-road trail routes throughout the
Halifax Region extending into the urban areas but maintaining a wilderness
and rural focus. The project calls for an expanded trail system that includes
water routes and community partnerships to assist with organization,
fundraising and volunteer labour.
In addition to providing a trails route map and description, the project

includes standards for general trail construction and selective pedestrian
bridge design standards. The document states that many sections of the trail
route should be designed as multi-use trails that accommodate a variety of
users such as pedestrians, bicycles, skiers, off-road vehicles and equestrian.
In order to accommodate such a range of users, the trails must be constructed
at 3.0 metres in width and remain unpaved.
The design standards and route map are an input to the recommendations in
the AT Plan. As the AT Plan is focused on providing an exclusively non-
motorized transportation system with a commuting as well as a recreational
focus, standards and recommendations are refined to accommodate these
modes. In certain cases, this has resulted in recommendations for paved trail
Typical example of a
sections with a 4.0 metre width with different construction and design
Regional Trail.
standards.
Exhibit 1.13
Regional Trails System

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Halifax Urban Greenway
The Halifax Urban Greenway is a proposed multi-use trail following the CN

Rail cut through Peninsular Halifax from near the Armdale Rotary to Young
Avenue and connecting to Point Pleasant Park. The concept is being pursued
by the community based Halifax Urban Greenway Association which, in the
spring of 2004, received funding from HRM to proceed with planning and
design of the first phase of the project. The trail is proposed to run parallel to
the rail tracks and be separated by distance and/or grades to maintain safety
standards and provide for an enjoyable experience of green space and natural
areas along the route. The project envisions a link between public parks, and
water access points along the Northwest Arm, that would provide a seamless,
non-motorized route from a major access point onto Peninsular Halifax
(Armdale) to major destinations such as Dalhousie and Saint Mary’s
Universities.
In December, 2005, HRM Committee of the Whole expressed continuing

support for Phase 1 of the project by allocating additional funding.
The concept of an urban greenway trail is an important input to the

recommendations in Sections 4 and 5. These recommendations link the
proposed trail into an expanded multi-use trail (4.0 metre paved surface or
3.0 metres) paved surface with 0.5 metre undeveloped zone on each side)
that extends around Peninsular Halifax. The result will be a gentle grade
trail that can accommodate walking, bicycling and inline skating for
residents and tourists linking:
• Downtown Halifax;
• Point Pleasant Park and Seaview Park;
• Universities, hospitals, military and other major employment destination
CN Rail cut through Peninsular areas;
Halifax.
• Transit terminals (existing and proposed);
• Heritage, cultural and other tourist/leisure destinations;
• Dartmouth via the MacDonald Bridge; and
• Proposed on-road and off-road links to the Head of St. Margaret’s Bay and
Bedford-Sackville.

1-26
Exhibit 1.14
Halifax Urban Greenway
2014 Commonwealth Games Bid
HRM was selected by Commonwealth Games Canada to bid against

Glasgow, Scotland and Abuja, Nigeria for the 2014 Commonwealth Games.
The winning city will be announced in November 2007.
The Commonwealth Games is the third largest sporting event in the world
and after consultation with Federal Government representatives and the
International Commonwealth Committee, HRM’s Commonwealth Games
Committee determined that conditions were very positive for Canada to win
the bid. If Halifax is the winner, the games will bring over 6,000 athletes
from 72 nations to compete in 15 to 20 sports with an estimated 635,000
spectators. The primary location of new venues will be Shannon Park in the
former City of Dartmouth. The integration of this former Department of
National Defence holding into other visitor destination areas and competition
sites is included in the recommendations presented in Sections 4 and 5.

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1.7 Provincial Capital Works Projects
The Nova Scotia Department of Transportation and Public Works currently

has three major new construction projects planned for the Halifax Region.
They are Highway 103 upgrades from Otter Lake to Tantallon, Highway
118/Wright Avenue Interchange and the proposed Highway 113.
Highway 103 is currently twinned from Highway 102 to Otter Lake and the
Department of Transportation and Public Works is continuing with plans to
upgrade the next 15 kilometres of highway to Upper Tantallon. This project
was announced in 2002 and during 2005 construction was completed on
upgrades to the Exit 4 and 5 interchanges and a concrete arch over an area
multi-use trail. The project is due for completion in the fall of 2006.
On the eastern side of the Halifax Harbour, a new interchange was

constructed at the entrance to the former Whebby Quarry to allow vehicle
access to a new commercial development (Dartmouth Crossing). While no
timeframe has yet been set, HRM is considering the extension of Wright
Avenue in the Burnside Industrial Park to link into the new interchange.
Highway 118 begins in Dartmouth and eventually joins Highway 102 at
Miller Lake following the western shores of Lake MicMac and Lake Charles.
During the design stage for the intersection, options were discussed for
allowing AT elements and the final option includes a trail connection to the
bridge, a sidewalk along the bridge, and a trail connection into the nearby
park. Considering the strategic nature of providing better AT connections to
the Burnside employment area as well as a main off-road link with Lake
Charles and beyond, new developments in this area should include AT
facilities.
The Department of Transportation and Public Works forecasts continued

traffic growth on Highways 102 and 103 and the Hammonds Plains Road.
The proposed Highway 113 would join Highway 103 near Sheldrake Lake
with Highway 102 near Hammonds Plains Road and attract traffic from other
commuter routes while improving service levels in a growing area. The
project is not currently scheduled for construction but corridor preservation
began in 1998 and a proposed alignment has been identified that is
undergoing a Class 1 Environmental Assessment. The EA Focus Report for
Highway 103 and the Birch Cove Lakes/Blue Mountain Study include an AT
corridor.
All of these 100 series highway projects are included in the AT Plan
recommendations.

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2 Existing and Expected Future Conditions

2.1 Introduction
This section reviews current and expected future conditions in the Halifax
Region that will influence or impact an Active Transportation network and
supporting programs and policies. The review is for a 20-year timeframe and
includes movement systems and land use patterns, attractions and
destinations, and barriers and gateways.
2.2 Movement Systems and Land Use Patterns
Understanding the Halifax Region’s movement systems and land use patterns
is an important element of network design. The Active Transportation
network must build upon the existing on-road and off-road system with the
result being an integrated network that also supports transit. In built-up
areas, the network will be integrated into existing land uses. In new
development areas, the network will become part of an integrated approach
for moving within and between communities.
Movement systems and land use patterns range from narrow urban streets in
Peninsular Halifax that date back over 250 years to modern planned
communities like Bedford South. Current land uses within the Halifax
Region are the result of six factors:
1. Historic settlement patterns around Halifax Harbour and rural

communities from Hubbards to Musquodoboit Harbour.
2. The geography of the Halifax Region that varies from Atlantic Ocean
coastline, steep slopes with extensive rock outcrops to gently rolling
terrain with abundant soil cover.
3. Expenditures by senior levels of government to link communities and to

install infrastructure and services.
4. Past regional and municipal planning efforts.
5. Current municipal plans and development standards.
6. Market demand.
Residential
In older settlement areas (including Peninsular Halifax, Dartmouth, Bedford

and other smaller rural-based settlements), a compact form of development
occurred that was originally based upon movement by walking, and horse
and buggy. Narrow streets with buildings close to the street line are the

2-1
norm in these parts of the Halifax Region while street and sidewalk width
can vary from block to block. Integrating an Active Transportation network
into these older areas benefits from pedestrian friendly settings but is
constrained by a relatively high density of development, a lack of space
within the road right-of-way for new lanes and few undeveloped parcels of
land.
There is a difference in the structure of areas constructed after World War II

from the more compact, multi-use form that exists in older areas. Rapid
suburban growth in the post World War II period is built on the promise of
safer, cleaner communities with larger building lots and fueled by increased
private auto ownership. The resulting changes to commuter patterns and
community design have produced a modern urban and suburban form of
development that is based around the automobile as an essential element of
daily life. While new communities like Colby Village and Sackville were
planned by the Province of Nova Scotia or private developers, large parts of
the former Halifax County experienced rapid growth in lot-by-lot linear
development along rural highways. Walking and wheeling infrastructure is
uncommon in these areas.
“Chinatown” commercial As outlined in Section 1.5, the Regional Municipal Planning Strategy
cluster on the Bedford
contains policies that will alter established development patterns, with
Highway.
housing growth over the 2001-2026 period (58,750 new units) expected to be
25% in the Regional Centre, 50% in suburban areas and 25% in rural areas.
An objective of the Regional MPS is to restrict low density suburban and
rural development, and concentrate new growth in defined rural and
suburban settlements while strengthening public transit links to transit hubs
and designated employment areas.
Integrating an Active Transportation network into the suburban areas of the

Halifax Region contains fewer constraints that older urban areas. There is a
lower density of development and street right-of-ways are typically wider.
There are also more vacant parcels (public and private) that can be used to
link neighbourhoods, recreation facilities, transit facilities and employment
areas.
Rural settlements are different from an Active Transportation perspective.

These areas are characterized by historic settlements that developed around
harbours or highway links. Movement between coastal communities was
primarily by water so older settlements are compact and face many of the
same Active Transportation integration challenges as urban settlements
around Halifax Harbour since the network must be integrated into small lots.
Sambro and North Preston are examples. Outside of the compact core of
rural settlements, a linear form of low density development is the norm along
rural highways. Safely integrating an Active Transportation network along
rural highways is a challenge not faced in most suburban and urban areas.

2-2
The existing system of off-road trails and pathways consists of four principal
configurations:
1. The oldest paths follow the banks of rivers from the coast into the
interior. These were developed as fishing and/or hunting routes, often
have a long history, and tend to be for walking only. Most routes are
informal, although some, such as the Crowbar Lake Trail, are being
developed by community associations.
2. Park trails are generally short and entirely non-motorized. The majority
of these are owned by the Halifax Regional Municipality. Most are well-
connected to road and sidewalk access.
3. Old settlement roads and former tracks to abandoned settlements are

being used extensively by off-road motorized vehicles and mountain
bikes. This network is extensive and mostly informal.
4. The abandoned rail-lines from Halifax to Lunenburg County and

Dartmouth to Gibraltar Rock have been acquired by the Province of
Nova Scotia and are being developed by volunteer associations as
shared-use recreational trails. They permit a variety of uses with some
allowing motorized uses (such as the Head of St. Margaret’s Bay area).
Most off-road path use has been limited by lack of options, but since the
recent development of linear paths along abandoned rail corridors, a larger
segment of the population has begun using, and requesting, additional
opportunities. Lack of connectedness is cited as the principal disincentive to
increased use by more tourists and residents.
Employment
The Regional MPS defines the location of major employment areas. Over
the 20-year timeframe of the new Plan, service and knowledge-based
industries should continue to dominate the economy and employment
distribution should be similar to the economic geography illustrated in
Exhibit 2.1 with Peninsular Halifax, Burnside/City of Lakes, Eastern
Passage/Shearwater and Bayers Lake being the dominant urban employment
areas. Outside of these areas, the Halifax International Airport is the largest
rural employment area. Direct employment is estimated at over 6,400 for the
Halifax International Airport and adjacent Aerotech Business Park. 13 In
2004, the top five employment locations were:
Halifax Central Business District: 13.5%

Burnside/City of Lakes: 11.1%
Halifax Peninsular Hospitals/Universities: 9.7%
13
Economic Profile of Greater Halifax, Greater Halifax Partnership, October 2005.

2-3
Naval Dockyards: 4.2%

Halifax International Airport/Aerotech 3.1%. 14
Fifty six percent of jobs (total of 207,600 in 2004) in the Halifax Region are
located in the urban core with 70% of employment within 5.0 kilometres of
City Hall (Duke and Barrington Streets). This value compares to 38% for
other major Canadian cities. While growth is concentrated in the urban core,
all job growth in recent years has occurred outside of the 5.0 kilometre radius
of City Hall. Sectors expected to grow over the next two decades are Trade;
Finance, Investment and Real Estate; and Health.
Exhibit 2.1 depicts the distribution of employment in the Halifax Region.

This distribution pattern and planned changes under the Regional MPS are
important considerations for active commuting with transit links. The
linking of major employment areas with AT modes is acknowledged in
Sections 4 and 5 as a critical building block to achieving the Plan’s vision,
goals and objectives.
14
Ibid.

2-4
Exhibit 2.1
Halifax Region Economic Geography

2-5
2.3 Visitor Profile, Tourist Attractions and Destinations
The Active Transportation Plan must meet the current and expected future
needs of residents and tourists. The Regional MPS frames the location and
size of the resident population. The characteristics and needs of visitors must
be investigated in a similar context.
In 2004, there were 2.243 million visitors to Nova Scotia with 64% (1.44
million) coming to the Halifax Region. This level of visitation generated
1.293 million room nights sold for a 63% occupancy rate with most of these
rooms located in Downtown Halifax. The mode of tourist entry to the
Halifax Region is dominated by automobile (64%), air (28%) and
motorcoach (4%). There were also 211,000 cruise ship passengers to the
Port of Halifax. 15
The major access points for visitors to the Halifax Region are 100 series
highways (101, 102, 103), the Halifax International Airport and the Cruise
Pavilion operated by the Halifax Port Authority at the Seawall along the
Halifax Waterfront. The major tourist attractions and destinations are the
Halifax Waterfront, other historic attractions in Peninsular Halifax (Citadel,
Tourists on the Halifax Art Gallery of Nova Scotia, etc.) and Peggy’s Cove. Visitor Information
Waterfront. Centres (VICs) are located to reflect this demand and the dominance of
accommodation in Downtown Halifax.
Exhibit 2.2 lists the economic impact of visitors to the Halifax Region. In
2004, tourism revenue exceeded $625 million with the result being 16,100
jobs and almost $100 million in taxes. Close to 640,000 tourists entered the
Halifax Region at the Halifax International Airport while 211,000 cruise ship
visitors entered at port facilities.
15
Nova Scotia Department of Tourism, Culture and Heritage, Tourism Insights Publications, 2005.

2-6
Exhibit 2.2
Halifax Region Tourism Economic Profile
Economic Impact (millions) 2000 2001 2002 2003 2004
Tourism Revenue ($ millions) $542 $551 $631 $620 $627.1

Municipal Taxes ($ millions) $10 $11 $11 $11.2 $11.0
Provincial Sales Tax $41 $42 $48 $46.8 $47.3
Federal Sales Tax $36 $37 $42 $41.2 $41.6
Total Taxes $87 $89 $100 $99.2 $99.9
Payroll: Direct and Indirect $212 $215 $247 $242.5 $245.1
Employment: Direct & Indirect 15,400 15,400 17,100 16,300 16,100
Number of Visitors to HRM by
Entry Point
Halifax International Airport 548,144 470,700 503,000 567,200 636,100
Cruise Ship Visitors 138,800 158,400 156,900 171,000 211,000
Source: Tourism Insights, Nova Scotia Department of Tourism, Heritage and Culture.
Exhibit 2.3 provides a profile of visitors in 2004. The average party size was
2.2 persons with the majority traveling as a couple between the ages of 45
and 54 years. The length of stay tended toward longer periods with most
parties staying six to 10 days. The activity having the highest participation
rates among visitors was leisure walking/hiking with 71%. Visiting historic
sites, museums, beaches and provincial parks received participation rates of
40%, 39%, 33% and 31% respectively.
Passive and active recreational activities such as walking and hiking are
often enjoyed by tourists. These Active Transportation modes can be
integrated with other activities such as shopping, nature observation, visiting
historic sites and museums all of which are readily available in the Halifax
Region and rank high in visitor participation rates.

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Exhibit 2.3
Halifax Region Visitor Profile
Party Composition Main Reason for Visiting HRM
As a Couple 44% General Pleasure/Recreation 50%
Alone 25% Visiting Friends/Relatives 30%
As a Family with Children 15% Business 8%
With Friends 9% Convention/Conference/Meeting 4%
As Two or More Couples 3% Just Passing Through 2%
Other 3% Personal Business 1%
Age of Members of Travel Party Length of Stay
14 years and Under 11% One Day 11%
15 – 19 years 6% Two Days 15%
20 – 44 years 5% Three Days 14%
25 – 34 years 14% Four to Five Days 21%
35 – 44 years 25% Six to Ten Days 23%
45 – 54 years 30% Eleven Days or More 16%
55 – 64 years 28%
65 – 74 years 16%
75 years and over 6%
Source: 2004 Visitor Exit Study; Nova Scotia Department of Tourism, Heritage and Culture, Tourism Insights.
The Tourism Partnership Council has set a goal of increasing tourism

revenue growth in Nova Scotia by 100% from 2002 to 2012. 16 While the
intention of the AT Plan is not to assess the validity of this goal, the AT
network must incorporate the needs of a growing and changing tourism
market. To identify trends in tourist demand for Active Transportation,
special tabulations from the Travel Activities and Motivation Survey
(TAMS) were used. An association of Canadian tourism ministries and
organizations collaborated in 1999 to conduct TAMS as two large and
comprehensive surveys to assess the travel activities and motivators of
pleasure travel among Canadians and Americans. TAMS was conducted
between September 1999 and April 2000. The telephone survey portion of
TAMS was completed by 28,397 individuals in the United States and by
18,385 individuals in Canada.
The Ontario Ministry of Tourism and Recreation commissioned a special

analysis and review of TAMS using 25-years into the future population
projections from Statistics Canada and the United States Census Bureau. 17
The future analysis projected current behaviour patterns into the future
16
Tourism First – Nova Scotia’s Vision for Tourism, Nova Scotia Tourism Partnership, 2002.
17
The results are summarized in the report, Impacts of Aging the Canadian Market on Tourism in Ontario, A Special
Analysis of the Travel Activities and Motivation Survey (TAMS), Ontario Ministry of Tourism and Recreation, July
2002.

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assuming that all factors except age, gender, education, place of birth and
immigration flows remain the same. While the outputs are specific to
Ontario tourists, they reveal that older adult activities like walking will
increase while adventure, youth and family-orientated segments will
experience decline. Demand will also decrease for strenuous outdoor
experiences. With an aging population, an increasing percentage of the total
population will be living from pensions and other sources. This shift from
earned income will result in a substantial increase in tourists on fixed or low
income. The implications of a changing tourism market are integrated with
current and future resident needs in the recommendations in Sections 4 and
5. From a tourism perspective, a focus is placed on improved walking and
cycling links from Downtown Halifax to historic and cultural attractions
around Halifax Harbour that can be accessed by avoiding steep slopes.
Another priority is improved rural networks.
2.4 Gateways
Gateways are important stationary positions that serve to both inform users
and highlight the “road ahead”. They indicate network locations that may be
significant access points, are a main transition area from one type of travel
experience to another and/or promote the system and destinations it leads to.
Gateways also offer opportunities to convey safety information, provide user
facilities, and promote tourism and general area attractions. They can be
designed very simply as signage only or be created as rest areas with
washrooms, seating, landscaping or even telephone and drinking water
access. For example, if designed with consideration for local historic
Salt Marsh Trailhead near attractions, gateways can also be themed to passively promote segments of
Dartmouth / Cole Harbour. the travel route or link with larger system or municipal branding initiatives.
The recommendations in Sections 4 and 5 focus on gateways between

neighbourhoods, employment areas, tourist attractions and entry points to the
network. The key tourist gateways to the Halifax Region are 100 series
highways, the Halifax International Airport and the port. Within the
recommendations, one gateway is missing. There is currently no regional
trail link with the Halifax International Airport. The airport is one of the
most important tourist gateways with 28% of visitors arriving and departing
from this location. The facility’s rural location offers an opportunity to
create an off-road multi-use trail link into the urban core. Creation of this
connection should be a medium to longer-term priority as demand will
initially be low. However, if Halifax is selected as the site for the 2014
Commonwealth Games, then a higher priority should be placed on this link
as it can be a considerable promotional tool for increased tourism visitation,
garner significant public interest and act as an anchor for further
development of the network while exposing the value of Active
Transportation to many potential new users.

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2.5 Barriers and Problem Areas
There are a number of design barriers to an effective network that often stop
potential users from enjoying the option of non-motorized travel. They
include:
Lack of Through Streets: Curvilinear street patterns make walking from one
destination to another longer than necessary and often provide only one
indirect travel option.
Large-Lot or Strip Development: Spread out development, especially along

roadways makes trips between destinations longer and more difficult to
accomplish without an automobile.
Lack of Crosswalks: In cases of busy or large streets and intersections, it is

sometimes easier and safer to drive across a street than to walk or ride.
Long Blocks: Lengthy urban and suburban blocks are inconvenient for AT
users who wish to travel efficiently between destinations.
Traditional urban form
offers challenges and Unappealing Environments: There are various examples of this but as a
opportunities for the general rule, they are spaces that are visually boring or unappealing such as
development of the AT stretches of wall along a roadway that people do not want to spend time in.
network.
Flat or “Dead” Wall Space: Unbroken, high walls such as may be found in
most urban areas, create feelings of vulnerability for pedestrians and do not
create safe or pleasant walking areas.
Wide Streets: Wide streets can encourage cars to exceed posted speed limits
and are very visually unappealing especially when left unshaded and/or
without medians. Wide streets can be hot during summer months for
travelers without air conditioning. The wider a street, the more difficult and
dangerous it is to cross.
Shopping Mall or “Big Box” Developments: These sorts of development

have a car oriented design with often little or no regard for AT modes.
Isolated Schools and Recreational Areas: These community building blocks

were once integrated into neighbourhoods but locating them further from
population centers often makes driving unavoidable. This is especially
concerning from the perspective of children and youth who after do not have
the option or ability to drive themselves.
Isolated Shopping and Employment Areas: Traditional urban forms found in

places such as Manhattan or London, England allow for the majority of
residents to enjoy a combination of AT and transit for most of their daily

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work and shopping needs. Isolated shopping and employment areas make
AT much more difficult as a viable option to the private automobile.
Geography: The coastline and the raised granite uplands of the Halifax
Region both define and limit available routes of travel. Connecting corridors
are often narrow and winding with the result being poor options for walking
and wheeling.
Lack of Connectivity: The off-road options available currently in the Halifax

Region are scattered and unconnected, nor are the majority of the trails
designed to integrate with on-road infrastructure.
These types of barriers, defined as either physically linear or point specific in

nature, create challenges to an effective Active Transportation network.
Physical barriers can often be overcome through engineered solutions or
alterations to the existing transportation system, while making the system
attractive and practical enough to attract and retain new users is more a
function of the overall strategy.
In addition to physical barriers, social barriers can prevent use of Active

Transportation modes of travel. Social barriers can include:
• Inadequate knowledge of safe and convenient walking and wheeling routes

to schools and other destinations;
• Inadequate skills on the part of AT users to safely share the roads with
automobiles;
• Limited awareness on the part of motorists of the needs and rights of
walkers and wheelers;
• Lack of support in the workplace for users of AT;
• Lack of encouragement of youth to make regular trips by AT modes;
• Inadequate institutional support, such as inadequate shower facilities or
insecure bicycle parking;
• Continued high degree of culturally reinforced dependency on the
automobile; and
• Perception of walking and wheeling as a recreational activity.
The Halifax Region is a unique municipality in that it consists of a variety of

different communities, differing street conditions (often on the same stretch
of road), fairly extreme geography (in terms of slopes and grades) and rural
areas that are sometimes connected to the larger municipality by a single
rural highway. When looking more specifically at urban and developed
suburban areas of the Halifax Region, barriers to an effective network can be
a result of geographical constraints such as the peninsular nature of urban
Halifax and access points such as the Armdale Rotary or issues such as an
overall pattern of development that is often not easily conducive to further
AT network expansion. Examples of these conditions include portions of

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the Bedford Highway and rural roadways such as the St. Margaret’s Bay
Road.
Exhibit 2.4 shows the major physical barriers in the urban and suburban
areas in the context of major destination areas. The major barriers include
slopes in excess of 8.0%, 100 series highways, the rail cut from Fairview to
port facilities in Downtown Halifax, large military or commercial land
holdings that restrict public access (refineries in Eastern Passage; military in
Shearwater, Downtown Halifax, North Dartmouth and Bedford) and
operational port and rail facilities (Southend Halifax, Fairview and waterlots
along the Rockingham Shore).
The recommendations in Sections 4 and 5 take a balanced approach to

addressing these barriers. Low cost solutions that appeal to the largest
segment of the population and can be integrated into planned capital projects
of HRM are a priority. For example, an Active Transportation link between
Burnside and Sackville is recommended as part of a proposed new highway
as opposed to a link along the Dartmouth Highway over Magazine Hill that
has steep slopes and crosses military holdings. In other cases, the cost of on-
road bicycle commute links is too expensive and alternative multi-use off-
road trail options are preferred. An example is the Bedford Highway from
the Rockingham area to Peninsular Halifax.
A barrier that is present throughout the Halifax Region is steep slopes. The
network seeks to avoid these areas to facilitate increased use by the largest
number of residents and visitors. As the overall population of residents and
visitors ages in the future, the avoidance of steep slopes will allow for
continued network use by users with increasing mobility challenges.
Substantial effort will need to be made to change social attitudes both in

order to increase the use of and demand for AT infrastructure and to ensure a
safer experience for uses of all modes of travel.

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Exhibit 2.4
Barriers and Destinations

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3 Framing the Active Transportation Plan

3.1 Introduction
The purpose of this section is to frame the Active Transportation Plan based
upon Province of Nova Scotia legislation, HRM design standards and the
findings of the consultation program.
3.2 Provincial Statutes
There are Provincial statutes that will influence or define the Active
Transportation network and supporting polices and programs. Appendix C
provided a detailed list of Province of Nova Scotia statutes as they relate to
various aspects of Active Transportation. Each is summarized in this section
within the context of potential cycling, transit, pedestrian, trail and
alternative modes of transportation links, and overall system development
and financing.
Municipal Government Act. - 1998, c. 18, s. 1. (Consolidated to June 23,

2004)
The Municipal Government Act (MGA) defines the powers of municipalities

within the Province of Nova Scotia and provides the legal basis to enact by-
laws and govern various aspects of the lives of residents. It is the document
from which municipal power flows and the starting point of any municipal
initiative.
As the MGA pertains to the development of the Active Transportation Plan, it

allows the Regional Council to:
• Identify property required for the purposes of widening, altering or

diverting an existing road or pathway and to develop new ones (Section
VIII, 224, (1)).
• Prepare a Municipal Planning Strategy to adopt provisions for subdivision

infrastructure charges for items such as new transit bus bays, (Section IX,
274 (1)).
• Designate a local authority for the purposes of the Motor Vehicle Act, for
the establishment of controlled access streets by a municipality and the
establishment of a pedestrian mall on a street or any other land owned by
the municipality (Section XII, 309).

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Motor Vehicle Act - R.S., c. 293, s. 1. (Consolidated to March 10, 2005)
Under the Motor Vehicle Act (MVA), no person may ride a bicycle on a
sidewalk except children, or when a traffic authority (designated by a
municipal council) has designated a sidewalk, or portion of one, to be a
“trail” and has authorized the use of bicycles on trails under the MVA.
Bicycles are permitted on designated highways and are to be ridden as near

to the extreme right of the travelled portion as possible. Although a
municipal council may exempt roads within their borders that are not
highways, it is also a standing offence for a person on roller skates or a skate
board to go on a roadway for anything other than crossing at a crosswalk.
Due to rapid advances in technology and a greatly expanded interest in self

propelled transportation, especially in urban areas, not all non-motorized
modes of transportation are specifically addressed under the MVA.
Regardless of the challenges, the MGA creates the on-road regulatory
framework for the Active Transportation Plan.
Off-Highway Vehicles Act. - R.S., c. 323, s. 1.
The Off-highway Vehicle Act (OHVA) governs all terrain vehicles (ATV’s)
and other motorized modes of off-road transportation in the Province of
Nova Scotia. The Act does not permit operation of ATV’s and other off-
highway vehicles upon highways, highway shoulders or the median of a
highway but does permit exceptions in certain cases.
As the Act pertains to Active Transportation, a person may drive an off-

highway vehicle across a highway at right angles if:
(a) that person stops the off-highway vehicle at the side of the road and
yields to all traffic upon the highway approaching so close as to
constitute a hazard;
(b) there is a clear and unobstructed view along the highway for a distance
of five hundred feet in each direction; and
(c) there are no passengers on the off-highway vehicle.
An off-highway vehicle may be operated during daylight hours between the

boundary line of a highway and the line of the shoulder farthest removed
from the traveled portion of the highway, namely the area commonly known
as the "ditch", with or against the flow of vehicular traffic. From sunset to
sunrise, the off-highway vehicle may only be driven in the same direction as
the normal flow of the vehicular traffic on that side of the centre line of the
highway. In addition, no person shall operate an off-highway vehicle on a
sidewalk, walkway, school grounds, utility service lane, cultivated land,

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private forest land, watercourse, campground, golf course, park, playground,

beach, sand dune or any private property, without the permission of the
owner or occupier. In addition, no person shall operate or drive an off-
highway vehicle upon or across a highway designated as a controlled access
highway pursuant to the Public Highways Act.
Trails Act - R.S., c. 476, s. 1.
The purpose of this Act is to:
(a) Establish and operate trails on Crown lands and over watercourses for
recreational use and enjoyment;
(b) Establish trails on privately owned lands, with the prior consent of the
owners or occupiers;
(c) Reduce the liability of the owner or the occupier of privately owned
lands where consent is given to designate a trail;
(d) Establish and operate trails, either by the Department of Natural

Resources or through agreement with persons, including municipalities,
clubs, organizations and other such bodies; and
(e) Provide for effective management of trails and the regulation of trail user
activities to ensure quality user experiences.
The Trails Act establishes how the Province of Nova Scotia may allow for
development of trails on Crown land, designate watercourses as official
trails, and enter into agreements to promote and enhance trail development
with other levels of government, organization, individual and/or combination
thereof.

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Statement of Provincial Interest Regarding Infrastructure - N.S. Reg.

101/2001
The Province of Nova Scotia has released Statements of Interest regarding

the importance of land and water resources as well as future community
growth issues. They are intended as guiding principles for provincial
departments and agencies, municipalities and individuals who may be
involved in making decisions regarding land use and they support the
principles of sustainable development.
Section 1(d) of The Statement of Provincial Interest Regarding Infrastructure

outlines that planning documents must consider “identifying known
environmental and health problems related to inadequate infrastructure and
setting out short and long-term policies to address the problems including
how they will be financed.” 18
Considering recent research on the health effects of inactivity in Nova Scotia

(including the Capital District Health Authority), the Active Transportation
Plan supports the Statement of Provincial Interest Regarding Infrastructure.
Environment Act - 1994-95, c. 1, s. 1.
The purpose of the Environment Act is to support and promote prudent uses
of the natural environment that recognize stated goals and principles.
Although not specifically dealing with Active Transportation network
development, the Act indirectly offers support for the Active Transportation
Plan because outcomes or outputs include:
• Pollution prevention and waste reduction.

• Promoting environmentally healthy and sustainable innovations.
• Making government a catalyst for achieving environmental goals.
• Encouraging the development and use of environmentally friendly
technologies.
As a more specific reference, the Act allows the Minister “to prepare model
by-laws and otherwise co-operate with municipalities to promote improved
air quality.”
Parks Development Act - R.S., c. 332, s. 1.
As Provincial Parks are destinations for both local and visiting Active
Transportation users, the Act allows for the opening (or closing) to travel of
any part of a highway, road or trail located within a Provincial Park.
Where a local applicant or cooperating municipality owns the land, the Act
also offers opportunities for local organizations to receive up to 50%
18
Nova Scotia Statement of Provincial Interest Regarding Infrastructure.

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financial support from the Province of Nova Scotia to enhance scenic areas,
trails and other natural attractions.
Wilderness Areas Protection Act - 1998, c. 27, s. 1.
Primarily intended for the protection of designated wilderness areas in Nova

Scotia, this Act does make specific reference to designating, developing and
managing trails (walking, hiking, canoeing, kayaking and cross-country
skiing) within wilderness areas where they are required for wilderness
recreation or for the management and use of a wilderness area. The Halifax
Region contains designated wilderness areas including: Terence Bay, White
A fully developed AT Lake, Waverly-Salmon River Long Lake, Tangier, Grand Lake and
network offers a variety Clattenburgh Brook. Any AT network connection into and within these
of transportation and areas will be governed by this Act.
recreational options.
Voluntary Planning Act - R.S., c. 496, s. 1.
The Voluntary Planning Act allows for the creation of a volunteer board with
the mandate to help government explore the complexity of public reactions
to social issues. Originally developed as an economic planning agency,
Voluntary Planning has evolved to address economic growth and
competitiveness, education and lifelong learning, environmental quality and
stewardship, fiscal management policy, health and social well-being and
natural resources. In this context, Voluntary Planning gives citizens a more
direct say in these important policy areas.
Working at arm’s length from government, this volunteer structure can

influence AT-related topics. One such undertaking by the Voluntary
Planning Board was the November 2004 “Off-Highway Vehicle Report”.
This report made 39 recommendations focusing on enforcement, safety,
protection of property, appropriate designation of trails and uniform
standards for off-highway vehicles. Although defining off-highway vehicles
as being motorized, the report recognizes considerable support for the use
and enjoyment of these vehicles across the Province. It also makes specific
recommendations for the restricted use of these machines in protected or
ecologically sensitive areas while suggesting an annual fee be collected from
users to support trail development and infrastructure needs.
3.3 HRM Design and Construction Standards
The Halifax Regional Municipality’s guide to municipal service design and

construction (The Municipal Service Systems Manual; also referred to as the
“Red Book”) contains standards for items such as sewer systems, storm
drainage, street lighting and tree planting among others. Items relating to
Active Transportation include: walkway, sidewalk, street and manhole/street
grating design standards.

3-5
The Red Book states various requirements for walkways and sidewalks that
specify certain measurements for minimum and/or maximum widths,
centered locations, drainage controls and right-of-ways. The same types of
provisions are required for roadway design. The Red Book also makes
mention of planning for increased pedestrian traffic in urban areas, higher
density development, mixed land use, promoting inter-modal transportation
systems and planning parking supplies in balance with walking, cycling,
transit and auto priorities.
The on-road standards of the Red Book are appropriate for safe and efficient
AT travel in most circumstances. One standard not covered in the Red Book
is off-road multi-use trail design. Recommendations for off-road multi-use
trails and other facilities are included in the companion report, Active
Transportation Plan Technical Appendix: Facility Planning, Design
Guidelines and Draft Trail By-Law. The recommendations in Sections 4 and
5 also acknowledge the hierarchy of roads within the core area as depicted in
Exhibit 3.1.

3-6
Exhibit 3.1
HRM Existing Road Hierarchy

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3.4 Consultation Findings
The consultation program included workshops, newsletters with comment

areas, a dedicated email address, telephone numbers to contact HRM and the
SGE Acres Team, and individual (group or key stakeholder) discussions. A
page on the HRM website was established to permit interested individuals to
provide their comments and all input provided was reviewed prior to the
preparation of this report. This input included four workshops to receive
comments on draft recommendations. Over 500 individuals or interests
participated in the consultation program.
HRM residents have
expressed a strong From the onset, a broad-based consultation process was considered essential
desire for increased
to the successful development of the Active Transportation Plan. The
sidewalks in urban and
suburban developments. program was designed to reach many different constituencies of existing and
potential new AT network users. It was considered to be indispensable to
receive information from urban, suburban and rural residents as well as those
who currently use AT modes of travel. A special effort was made to receive
comments from youth and special needs populations.
Summary of Key Findings
There is a high level of community-wide support for an integrated Active

Transportation Plan that meets the specific needs of urban, suburban and
rural areas, special needs populations (including mobility challenged) and
visitors. The concept of building the networks from the neighbourhood level
is acceptable as long as neighbourhoods are integrated over the 20-year
implementation period with transit facilities and off-road networks.
With a broad base of support for the AT Plan, participants in the

consultations stated that ongoing neighbourhood and community input is
required to ensure the proper development of an integrated, useful and
supported network.
A summary of AT network ideas from the consultations is presented in

Exhibit 3.2. This exhibit shows desired urban and rural routes, difficult
connections and regional trail connections. Also included are aspects of the
Regional MPS (Regional Centre boundary, planned urban centres, planned
suburban centres, planned rural centres and the possible ferry link from
Bedford to Downtown Halifax). All of theses network ideas were considered
in the recommended AT network.
Beyond network discussions, the consultations covered a wide range of

policy, operational and funding topics. One topic that was frequently
mentioned was the need for HRM and the Halifax Regional School Board to
acknowledge that the Board’s bus policy (not providing school transport for
students who live closer that 2.4 kilometres to a school) is not aligned with
the AT Plan recommendation to build the neighbourhood AT network within

3-8
550 metres (typical walking distance) of schools, transit terminals, recreation

facilities and other local destination areas. Although the AT Plan strives to
provide as much system connection as possible, for reasons explained earlier,
550 metres was chosen as the recommended starting point for HRM and
partners to work toward.
In the case of sidewalks, facilities could be expanded to eventually surpass

the 550 metre measurement with priority being given to special destinations
such as schools. Where local need exists, additional AT linear connections
could be implemented around schools in order to establish safer and more
visible connections with the 2.4 kilometre zone. Examples of how to achieve
these links are described in more detail elsewhere in this report and could
include other initiatives like the “Walking School Bus” program.
Another topic of discussion was the need for HRM to investigate the option
of providing development incentive bonuses for new commercial and mixed
use projects that include AT facilities (such as bike lockers and showers) that
encourage more tenants and employees to engage in AT modes of travel.
Several broad operational themes emerged from the consultations. They are:
1) HRM must establish trail standards for all of the Halifax Region and
secure the right-of-way for new facilities that are developed by
community groups.
2) HRM must work with the Province of Nova Scotia and the Federal
Government to have consistent guidelines, standards and regulations for
the funding, design and maintenance of off-road trails.
3) HRM should take over the maintenance (including winter maintenance)

and liability insurance for off-road trails after community groups build
the facility.
4) All new subdivisions should have sidewalks that are installed to the “Red
Book” standards.
5) There are over 20 community groups engaged in AT in the Halifax

Region. HRM should facilitate the integration of these groups into a
standardized (region-wide) management structure.
6) Funding through the Department of Health Promotion and Protection, the

Halifax Regional Development Agency (with support from ACOA) and
HRM has been very valuable in community engagement and current
network development. The efforts of these public sponsors should be
reorganized to provide HRM with an ongoing budget for AT planners,
designers, engineers and community health facilitators.

3-9
Exhibit 3.2
Summary of Consultation Input

3-10
Key Interests Findings

Discussion or meetings have been held with the following:
• Youth (JL Isley High School and the Adventure Centre)

• Ecology Action Centre/TRAX
• Heart and Stroke Foundation of Canada
• Sackville Rivers Association
• Halifax Regional Development Agency
• Halifax Regional Trails Advisory Committee
• North End Walkers
• ADAPT (Association of Doctors for the Advancement of Physical
Transportation)
• Velo Halifax
• BLT Rails To Trails
• St. Margaret’s Bay Rails To Trails
• Halifax Northwest Trails
• Halifax Urban Greenway Association
• HRM Advisory Committee for Persons with Disabilities
• HRM Bikeways Advisory Committee
• Portland Estates Residents Association
• Dartmouth Harbourfront Trails Association.
Input from these groups is included in Exhibit 3.2. A summary of additional

topics of discussion or points raised by some groups is presented below.
Youth
Youth meetings were held at JL Isley High School and the Adventure Earth
Centre in Fleming Park. Approximately 30 youth participated and their
places-of-residence included Dartmouth, Waverley, Halifax Peninsula,
Halifax Mainland South and rural communities of the former Halifax
County.
There is a high level of interest by youth for involvement in the route/mode

selection for the AT Plan’s implementation at the community/neighbourhood
level. Youth prefer sidewalks that link schools to bus terminals, recreation
centres and shopping areas.
Inline skating is preferred by girls over biking as they want to avoid

sweating. In contrast, boys prefer biking. If interest in biking is to increase
with high school students (senior), they prefer showers and change rooms,
and secure bike storage spaces. There is concern about safety for any links
that are not on-road. Off-road links (beyond daytime/weekend recreational
trails) for home-school and home-work trips will probably be avoided
because of safety concerns by youth and their parents. However, the concept
of rails-with-trails is fully supported because of gentle grades and high
profile safe settings. On-road bike lanes in rural areas (without a wider

3-11
paved surface and proper markings) are expected to not increase walking and
biking because of safety concerns.
A consensus opinion was expressed that the AT Plan should target youth in
senior elementary school (pre junior high) as this group is the most
physically active. Once youth reach junior high, formal activities (school
teams, etc.) mean that many students do not have the skills or family
resources to remain engaged. The result is a clustering of idle youth in junior
high school years that could become re-engaged (non-program) via AT. As
one student stated, “Once you reach high school, you become very settled in
your ways.”
Dalhousie University
Killam Library bicycle Ecology Action Centre/TRAX
parking.
Participants represented advocacy and health awareness organizations. They
strongly support an integrated urban AT network (with winter maintenance
and some intersections that give preference to cyclists) that links all
universities and key employment centres and meets the needs of youth and
the handicapped. Their vision includes more boardwalks and trails around
the Halifax Harbour, easements to private lands and walking trails in all new
subdivisions. However, footpaths around lakes must not impact on
migratory patterns. For example, trails should be set back at least 20 feet
from the shoreline. They also support legislation amendments that would
give the person who is most at risk the right-of-way on roads, and bike
access to sidewalks. Within the Halifax Region, they see the need for the AT
Plan to consider bike racks (inside and outside), showers and educational
signage. Implementation of the AT Plan should also consider bike lanes on
Bell Road and at the Armdale Rotary and the closure of shopping streets to
vehicles (like Quinpool Road) one day per week (Sunday is preferred).
Heart and Stoke Foundation of Canada
The Halifax Office of this well respected organization has taken an evidence-
based research approach to addressing local issues. They support Active
Transportation as it facilitates healthy lifestyles and reduces the use of
automobiles in land use planning.
Sackville Rivers Association
This group is now building a portion of the trail link between Bedford and
Sackville. They want to see a primary and secondary trail network
developed within the Sackville River watershed that will link into Mount
Uniacke and the Annapolis Valley, Bedford to Peninsula Halifax (Citadel
Hill end/start point) and the Sandy Lake and Jack’s Lake area. The routing
of this network has been prepared. Many of this organization’s concerns
relate to water quality and storm water management.

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North End Walkers
This group is a program of the North End Community Health Centre. It has
over 20 members who meet once a week to walk a series of five different
routes through a North End neighbourhood of Halifax. Most members are
seniors with the oldest being 84 and they consider their weekly walks to be
both a social and physical activity event.
This group has a particularly unique outlook on AT issues as they represent

older inner city citizens. The issues raised by “the Walkers” included: the
need for sidewalk repair, pedestrian access to all area parks (i.e. Seaview),
the need for rest areas/washrooms along walking routes, and the idea that
walking routes should be signed with more than just simply a route or trail
name. These signs could also include information on the history of
neighbourhoods that could raise awareness and create more pride in local
districts.
ADAPT
This physician organization supports initiatives for a healthier lifestyle that

will reduce overweightness and obesity.
Velo Halifax
This bike group wants to see cyclist user needs (safety and routing) more
effectively integrated into the on-road network. The restriction of
southbound motor vehicle movements on Vernon Street from the intersection
with Quinpool Road was identified as a priority issue that should be
addressed.
BLT (Beechville Lakeside Timberlea) Rails To Trails
This group manages a portion of the former CN Rail line from the Lakeside
Industrial Park to Timberlea. The group is a strong supporter of securing
access to rail and/or power corridors that will link the southern trailhead into
the Fairview Cove area and then Peninsular Halifax. They are also
concerned that a formal link via the Greenhead Road area into Mainland
South will increase ATV traffic and possibly lead to wheelchair-
pedestrian/cyclist conflicts.
St. Margaret’s Bay Rails To Trails
This group links into the BLT Trail and has a mandate to the HRM boundary
at Hubbards where the Aspotogan Trail begins in Lunenburg County. This
group maintains a multi- use trail that is targeted for visitors and local
residents. Local ATV riders use the trail to access backlands. They support
the continued development of an AT network in the Halifax Region but are
opposed to a direct link from the Head of St. Margaret’s Bay into Bedford

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and Sackville. They are concerned that this link will open up their area to
more ATV users and cause conflicts with pedestrians and cyclists.
Halifax Northwest Trails
This group describes their mandate area from Main Street to Hammonds
Plains Road. They are currently not managing any trails and support a north
to south off-road trail system that is safe, provides direct access to existing
and new residential areas and avoids steep slopes.
Halifax Urban Greenways Association (HUGA)
This resident’s association advocates the creation of a greenbelt and multi-

use trail stretching from the Armdale Rotary to Point Pleasant Park and
Young Avenue. They are strongly in favor of its inclusion in the AT Plan
and prefer a “community development” approach with themselves as the lead
agency representing the interests of area residents. The association has
existed for several years and has been in ongoing discussions with residents,
HRM, CN Rail and St Mary’s University to gain some type of jurisdiction or
influence over the land needed for the creation of an urban greenway.
HRM Advisory Committee on Persons with Disabilities
This urban focused advisory committee to HRM Regional Council has a

mandate to facilitate and promote the accessibility of all citizens to their
community including municipal government, programs and service.
Detailed design
elements should take Representatives of this group strongly advocated for acceptance of the
into consideration all
concept of “universal design” for any AT network and municipal projects of
users and mobility types.
any type. Essentially, they are working toward adoption of detailed design
practices that allow for the ease of use of items such as doors, sidewalks and
curb cuts by anyone in the Municipality, including the disabled.
Portland Estates Residents’ Association (PERA)
This group represents the Portland Estates area on a variety of issues

including AT. It has prepared fairly detailed recommendations for the AT
network in their local area. Specifically, they propose an AT “spine”
through the centre of Portland Estates on Portland Estates Boulevard West
with connections provided to the Portland Lakes and Shearwater Connector
trails. They expressed the opinion that this connection will provide direct
pedestrian and non-motorized routes to local schools, commercial districts
and transit terminals. Because Portland Estates Boulevard West is presently
oversized for its traffic classification, PERA is proposing that an AT right-
of-way be taken directly from the existing road, thereby reducing the
Retrofitting existing available lanes and providing traffic calming measures.
streets for bicycle travel
can significantly increase
use.

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Dartmouth Harbourfront Trails Association
This community group is dedicated to the planning, development and

management of a non-motorized, multi-use trail between the two Dartmouth
Ferry Terminals along the Dartmouth waterfront. It has achieved some
success by advocating for the development of a Dartmouth waterfront trail
and is supportive of HRM’s efforts to produce a detailed trail design for the
area. One of the group’s major desires is to create a “loop” between the
Dartmouth and Halifax waterfronts via the ferry service to Alderney Gate
and Woodside Terminals. The group advocates an AT network for all ages
and identified inadequate transit service in Dartmouth as being one of the
major reasons their trail and a larger AT network is essential for the future of
the area.

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4 Recommended Network
4.1 Introduction
This section presents the recommended AT Network. Section 4.2 describes

the network concept that is based around a primary “spine” system and a
secondary “community” system. Sections 4.3 to 4.6 then outline the network
development approach that was applied to the Halifax Region as the SGE
Acres Team evaluated over 1,000 kilometres of on-road and off-road
infrastructure. Section 4.6 contains the results of the evaluation process
where the recommended network is presented.
4.2 The Network Concept
The Halifax Regional Municipality, Province of Nova Scotia, Halifax

Regional Development Agency and many community-based partners have
taken a number of key steps to plan for improvements to the general
pedestrian and cycling environment. The challenge for many of these groups
has been implementation, and understanding how various transportation
modes interrelate and should be designed to complement each other. This
integration requires an understanding of current and future travel demand
characteristics for a number of modes, particularly walking, cycling and
public (land and harbour) transit.
A key future component of the new Regional MPS will be a Transportation

Master Plan. This functional plan will address infrastructure requirements to
support the Regional MPS, and as well as identify costs and priorities for
implementation.
In December 2002, Regional Council adopted in principle “The Blue Print

for a Bicycle Friendly HRM: Halifax Regional Municipality Bicycle Plan”.
The Bicycle Plan provided recommendations regarding existing and
proposed on-road and off-road cycling facilities. Implementation of this plan
has proven to be a challenge, particularly on Peninsular Halifax.
The Province of Nova Scotia, the Government of Canada and HRM also
fund and support the development of multi-use trails. The Halifax Regional
Development Agency plays a key coordination role in rural areas. The
Regional Trails Program is classified as a regional partnership and is
becoming an important component of the off-road AT system throughout the
Halifax Region in rural to urban areas. It is also an important tourism asset.
In addition to cycling and trail strategies, HRM is developing an expanded

land and harbour transit system. This system includes the MetroLink
initiative which commenced operations in 2005 as a limited-stop bus rapid
transit service. HRM is also considering a high speed ferry service from

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Bedford and possibly Purcell’s Cove to the Downtown Ferry Terminal under
the MetroLink banner.
These new initiatives will significantly improve mobility choices for

residents and visitors, the majority of whom currently rely on the private
automobile. With appropriate design and effective promotion, these
initiatives will increase the demand for pedestrian and cycling facilities that
link into an expanded transit system.
One of the goals of the Active Transportation Plan is to build upon existing
and previously proposed initiatives to establish a complete, integrated and
readily accessible region-wide AT network for rural, suburban and urban
areas. In order to integrate the various Active Transportation modes and
provide the necessary linkages to promote and facilitate public use, a key
building block for the AT Plan is a network of facilities that includes
sidewalks, cycling facilities and trails that are integrated and connected to
public transit infrastructure.
Linking AT with public
transit offers more viable The current lack of a connected and easily navigable network is a major
transportation alternatives
barrier to past efforts to increase the number of AT (pedestrian and cycling)
for communities outside of
the urban core. person-trips as well as the percentage of people who choose to use these
modes as part of a trip that also includes public transit. Metro Transit
conducts annual surveys at the Ferry Terminals and four Bus Terminals to
determine the mode of travel to these locations. One of the survey questions
was: "How did you travel to this terminal?" The 2005 survey results
illustrate the need for more effective connections as a large percentage of
users do not walk or cycle. By terminal, the results are:
• Alderney Ferry Terminal - 43% walk / 4% bike

• Halifax Ferry Terminal - 73% walk / 2% bike
• Woodside Ferry Terminal - 8% walk / 1% bike
• Cobequid Bus Terminal - 23% walk / 0% bike
• Lacewood Bus Terminal - 48% walk / 0% bike
• Mumford Bus Terminal - 43% walk / 0% bike
• Bridge Bus Terminal - 12% walk / 0% bike.
It is important to note that the buses did not have bike racks when the survey
was completed. MetroLink buses are now equipped with bike racks.
Additionally, all new MetroLink busses purchased by Metro Transit will be
equipped with bike racks.
To build upon past actions and achieve the overall intent of the AT Plan, a
comprehensive region-wide AT network is recommended that achieves the
following key objectives:

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• Make Active Transportation modes more convenient and less risky by

removing barriers to walking, cycling (including youth oriented travel) and
improving connections to public transit in the Region;
• Provide a connected off-road and on-road AT network to visitors as a

premier tourism asset;
• Encourage more people to walk, cycle, inline skate, etc. more often by
providing them with connections to where they want to go; and
• Support efforts to achieve a greener and healthier Halifax Region by

encouraging residents and visitors to choose Active Transportation modes
and to reduce greenhouse gas emissions through decreasing dependency on
the private automobile for travel, especially for short distance trips.
To achieve these key objectives, a continuous and connected network of

pedestrian and cycling (walking and wheeling) facilities is needed to
overcome barriers and create links among urban, suburban and rural
communities and other key destinations while at the same time promoting
connections to adjoining municipalities. Creating a seamless, clearly marked
and signed network, featuring linkages to both on-road and off-road systems,
is a prerequisite to increasing the Active Transportation modal share.
A central goal of the Active Transportation Plan is to double the number of

people who use AT modes for a portion of their entire trip, particularly for
utilitarian (commuting) purposes. To achieve this goal, a hierarchy of routes
and facility types is recommended to appeal to a wide range of skill levels
and includes:
• Off-Road Multi-Use Trails

• Sidewalks
• Signed-Only Cycling Routes
Example of coloured • Bicycle Lanes
bicycle lane treatment – • Paved Shoulders on Arterial and Higher Volume Collector Roads or Rural
Sunnyside, California. Roads.
As these routes and facilities are implemented, an educational and

promotional campaign is required to increase existing and potential new user
awareness. It is expected that as users of the network become more
comfortable using the range of expanding facilities and connections over the
20-year implementation period, they will gain the skill, knowledge and
confidence to lengthen their trips by AT modes. They will also “graduate” in
their choice of routes and facilities by moving from quiet streets or corridors
to walking and cycling on or along multi-lane roads, riding with traffic on
urban streets or walking and cycling on paved shoulders on rural roads. The
intent is that more people will choose more often an Active Transportation

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mode of travel and reduce their current dependence on the private

automobile.
A network concept is recommended that includes a hierarchy of routes and

facility types. These include:
• A Primary “Spine” System

• A Secondary “Community” System.
The primary and secondary systems are further broken down into two
segments, a pedestrian system and a cycling network. While AT is
comprised of additional modes beyond cyclists and pedestrians, these two
modes act as the “design” modes as all other modes of AT fall into one of
these two categories. Cycle based facilities are examined and proposed as a
network of routes while pedestrians based facilities are proposed as a system
of zones with the density of pedestrian facilities varying with density of
development and surrounding uses.
4.3 Network Development Approach and Objectives
Exhibit 4.1 illustrates the network development approach used by the SGE
Acres Team. This process includes the following steps:
1) Developing A Route Selection Process: which includes a set of principles

that derive qualitative and quantitative criteria to assist in selecting a
preferred route and facility type.
2) Completing an Inventory and Assessment (Using the Principles and

Criteria Developed for this Study) of Existing Conditions: which
compiles and digitally maps all existing or previously planned
pedestrian, trail and on-road and off-road cycling facilities to establish a
base condition.
3) Identifying and Assessing Candidate Routes: which involves selecting

and investigating potential AT routes and evaluating each to determine
its feasibility of inclusion as part of the recommended network.
4) Suggest Route Networks and Zone Systems: which involves mapping out
each network and system for review.
5) Determining Facility Types for Selected Routes: which involves

choosing an appropriate facility type for each route or system and
illustrating this on a map.

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6) Selecting the Network Plan.
During this process, the overall network is broken down into a bicycle route
network, pedestrian zone system, and regional trail route system after the
candidate route map has been compiled. This mapping allows a more
detailed examination of each segment of the AT system. Once work is
complete on route selection and facility type determination, these three
system segments are re-amalgamated to form the recommended AT network
plan.

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Exhibit 4.1
Network Development Process Chart

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The following objectives were established for the pedestrian and cycling
network component of the AT Plan:
• Complete the proposed AT Network as envisioned in the AT Plan within

20 years and to incorporate AT into new developments.
• Develop the on-road and off-road network based on HRM’s “Red Book”
or the facility planning and design guidelines contained in the companion
report’s facility planning and design guidelines.
• Better integrate on-road and off-road network facilities in the urban,

suburban and rural environments, as well as in parks and open space.
• Connect to pedestrian, trail and cycling facilities in adjacent

municipalities, where possible.
• Serve a broad range of users and interests.
• Respect and support the natural environment, cultural and heritage

resources, urban design and longer range planning objectives of HRM.
• Link residents and visitors to desirable or important destinations and

attractions, wherever feasible.
• Provide connections to transit, wherever feasible.
To guide the development of the AT network plan, and to ensure that due
consideration is given to achieving these key objectives, a set of route
selection principles and related criteria have been established. These are
outlined in the following section.
4.4 Route Selection Principles and Evaluation Criteria
The route selection process is based on a set of principles from which the
location of appropriate routes and the preferred facility type were selected.
The following is the list of principles that were used to evaluate the existing
network and recommend new routes:
Attractive: AT routes should take advantage of attractive and scenic areas,

views and vistas.
Diverse: The AT network should provide a diverse range of route options

and experiences for users.
Visible: The AT network should be a visible component of the transportation

system.

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Connected: All cycling, pedestrian and trail routes should be connected to

form an overall AT network that fully services existing and future
developments. The AT network should connect key gateways throughout the
Halifax Region through a “spine” of on-road and off-road facilities.
Accessible: Routes and facilities should be easily accessible within and from
local communities and also provide access to major destinations throughout
the Halifax Region.
Reduce Risk Of Use: The system should be planned and designed to

minimize the risk to users while balancing the need to locate and align routes
where people will use them.
Accommodating: New and existing on-road and off-road rights-of-way

should be designed to accommodate Active Transportation modes, where
feasible.
Integrated: The AT network should be integrated with other modes of

transportation, particularly public (land and marine) transit. Primary routes
should provide direct access to transit nodes and regionally designated
growth centres.
Supported: Support services and facilities such as bicycle parking should be

available along cycling routes and destinations. Routes should be selected
Maintenance of that provide opportunities to develop supporting facilities.
attractive “green” areas
must be balanced with Distributed: The density of the recommended AT network will be higher in
safety and operational the urban areas. In urban and suburban areas, sidewalks should ideally be
concerns. provided on all streets and cycling facilities should ideally be no more than a
five minute bike ride (one to two kilometres) from the next nearest facility
that serves as part of the spine (primary) network. In rural areas, network
facilities should serve populated areas at a density dictated by population,
existing settlement patterns and proposed changes in settlement patterns
under the Regional MPS. Given the linear nature of rural development along
rural trunk highways, linear network facilities will likely be appropriate. In
downtown areas, pedestrian facilities should be on both sides of each street
and cycling facilities should be located at a density comparable to the
existing arterial and collector road network and provide direct connections to
major land and harbour (ferry terminal) transit facilities. All new
developments in the Halifax Region should be designed and planned to
include significant AT elements consistent with the Canadian Institute of
Transportation Engineers’ “Promoting Sustainable Transportation Through
Site Design: An ITE Proposed Recommended Practice”.
Pedestrian and Bicycle-Friendly: The Halifax Region should ideally have

pedestrian and bicycle friendly guidelines for all streets, regardless of
whether a street forms part of the designated Active Transportation network.

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As illustrated in Exhibit 4.2, a five point scale ranking (poor to excellent)

was applied to candidate routes. Six evaluation factors and 22 evaluation
criteria were used by the SGE Acres Team to select or reject a potential
candidate route. The six evaluation factors were weighted. For example,
"Risk Assessment" was viewed as having greater importance in selecting a
route relative to "Cost".
In summary, route selection was based on the experience of the SGE Acres
Team, decisions made in the field regarding the application of the route
selection criteria as well as quantitative information such as traffic volumes,
road and rights-of-way width, distance from key destinations and from the
next nearest proposed route. Potential routes were screened using this
approach and those routes that, in the opinion of the team, are less desirable
compared to a parallel route, were eliminated from further consideration as
part of the designated AT network.
All existing streets with sidewalks and most roads and trails open to the
public contribute to Active Transportation and make the Halifax Region
pedestrian and cycling friendly. However, only some of these facilities form
part of the designated AT network. The objective of the Active
Transportation Plan is to develop a connected AT network and supporting
policies and programs that integrate well with other transportation modes,
has infrastructure that is signed and visible, and is based on a primary (spine)
and secondary system of routes. In this context, the recommended AT
network is the “backbone” and all other AT infrastructure (e.g. sidewalks and
trails) though not designated in the AT Plan will still form an integral part of
the larger system that will “supply” the designated system with its users.

4-9
Exhibit 4.2
Route Selection Evaluation Criteria

4-10
4.5 Facilities Description
In designating facilities for the AT network, there are several fundamentals

that form the basis of the design guidelines that are included in the
companion report. Care should be taken by implementing organizations to
balance these fundamentals so that no one takes precedence over others. For
example, while extreme grades may be difficult for AT users to navigate,
completely flat trails can be uninteresting.
Design fundamentals are grouped into two main categories: Facility Design
and Operational Design.
4.5.1 Facility Design
These fundamentals influence the design and ultimately the uses of AT

facilities such as bicycle lanes and sidewalks. Effective facilities must have
several elements of good design:
Horizontal Dimensions: Facilities must be wide enough to accommodate

their intended users. A trail that will accommodate in-line skaters must be
wider than a trail that is meant to only accommodate cyclists.
Vertical Dimensions: Facilities must provide adequate vertical clearance for

their intended users. This is particularly important for trails with a
significant tree canopy that may require maintenance to prevent it from
interfering with users.
Example of an AT Surface Materials: The types of materials that may be acceptable for any
median treatment.
given facility depend on the intended uses. In-line skaters tend to require a
smooth surface such as asphalt. Cyclists and pedestrians using off-road
facilities are more easily able to adapt to rougher surfaces or even surfaces
comprised of loose aggregate material such as gravel (although in most
cases, a smooth surface is preferable for pedestrians and cyclists also).
Primary routes used by wheelchairs, strollers and cyclists in urban and
suburban areas require a hard surface.
Location: The location of a facility relative to its environment is important

because it can affect safety and efficiency. For example, on-street bicycle
lanes must be placed in certain locations relative to parked cars and vehicular
traffic lanes to maximize safety and rider comfort. Also, the location of
sidewalks and other pathways must meet user needs.
Grades: Heavy grades can create difficult conditions. This is more

pronounced for special needs populations, cyclists and in-line skaters than
pedestrians. Typically, facilities with steep grades should be avoided. The
exception is recreational trails where part of the appeal is in traversing heavy
grades.

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Geography: Where possible, facilities should take advantage of natural

geography such as valleys and watercourses which create pleasant
environments.
4.5.2 Operational Design
These fundamentals influence how the AT facilities operate. Their design is

important because they influence how well a facility may function.
Signs: Signs must be located so that they are conspicuous, legible and
comprehensible. They should be located so that no trees, other signs, or any
other object are likely to block them. Also, signs should be located
sufficiently in advance to allow for adequate response time. Care should be
taken to avoid saturation, as this could reduce the credibility of the signs.
Signs should be designed according to national, provincial or municipal
standards as applicable. These standards typically include dimensions,
reflectivity, font size and type, colour and construction material. In addition,
all on-road signs must comply with Province of Nova Scotia regulations.
Pavement Markings: Pavement markings should be applied using appropriate

materials and should be of a size and colour to make them easily visible.
They should be placed in locations that are highly visible to both motor
vehicle drivers and AT users. As with signs, their appearance should adhere
to acceptable standards as applicable.
Traffic Signal Location: Traffic signals are typically located at intersections

with sufficient traffic volume warrants. (HRM uses the system established by
TAC). However, locations with significant AT volumes should also be
considered for partial signalization in some cases, including both
intersections and mid-block crossings.
Traffic Signal Phasing: Traffic volumes typically guide traffic signal

phasing. An allowance is made to allow for a “minimum” pedestrian
crossing time. However, this minimum pedestrian crossing time may not be
adequate for everyone to safely cross an intersection. Also, the minimum
time may not reflect the volume of AT users that need to cross the
intersection, resulting in congestion. Therefore, it may be necessary at
intersections with high AT use to conduct field studies to determine if more
time is required in the cycle.
Lighting: Whether or not facilities should be lit is a function of location and

use. It is not necessary or appropriate to light every facility. For example,
lighting natural trails can have a negative effect on wildlife and vegetation.
Inappropriate lighting has the potential to create safety hazards. It can also
be unnecessarily expensive to light every AT facility.

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4.5.3 Crime Prevention Through Environmental Design (CPTED)
Crime Prevention through Environmental Design (CPTED) is based on the

notion that portions of the physical environment can be manipulated to
produce behavioral effects in the people that use and interact within a space.
Specifically, it refers to the application of a range of design initiatives and
principles to an area or site in order to reduce the incidence and fear of crime
and thereby improve quality of life. This can be accomplished by reducing
or eliminating aspects of the physical environment that lend themselves to
supporting criminal behaviour.
Crime is a significant social barrier to regular, outdoor physical activity.

Fear of crime can often keep people from walking and biking around their
community or from using parks or trail systems that remove them from the
perceived safety of the automobile. This barrier becomes even more
pronounced within certain groups such as women, children, the physically
challenged and senior citizens. Tools such as community policing,
neighbourhood watch organizations, group travel and public education
campaigns all help to address the issue, but CPTED offers a unique approach
that creates “built in” physical crime prevention elements that exist in and of
themselves and are not dependant on the continued vigilance of active
organizations and residents.
There are four main CPTED principles that were reviewed by the SGE Acres
Team in selecting the AT network. They are:
1) Natural Surveillance: Areas that maximize the visibility of users are less
likely to be targets of crime. Design features include adequate lighting,
doors and windows facing onto streets and paths, and pedestrian friendly
street and sidewalk design.
2) Territorial Reinforcement: Physical design can help define the limit of

public and private spaces. By doing this, facility users develop a sense
of territorial control while potential offenders, sensing this control, are
deterred.
3) Natural Access Control: Reduces the opportunity for crime by denying

access to potential targets and creating a sense of risk in potential
offenders. This is gained by designing streets, sidewalks, building
entrances and neighbourhood gateways to clearly indicate public routes
and to discourage access to private areas.
4) Maintenance: Facilities that are properly maintained are more inviting to

users than those that are run down. Well maintained facilities also
generally provide a safer environment for users.

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The Active Transportation Plan poses some challenges for implementing

CPTED design principles as multi-use off-road facilities are often, through
their own nature, large, linear and removed from the public eye. It is also
important to realize that for many users of an off-road AT system, the very
naturalness of the resource and sense of apartness from the urban
environment it brings is something to be valued and preserved. However,
there are examples of various CPTED principles that have been successfully
applied to natural and urban AT systems in other municipalities across North
America and Europe. In order for an AT network to be effective, users must
feel safe and secure. More specifically, consideration was given to the
following CPTED influenced factors in the AT network:
• Users of the network should be easily visible to people on adjacent

roadways where possible.
• Because bushes or other shrubbery can provide hiding places for potential
offenders, caution should be exercised in their placing. Bushes that are
planted further back from paths and sidewalks make it more difficult for
people to sneak up on others.
• Pedestrian and bicycle routes should be located in areas with significant

street frontage (and the associated doors and windows) as opposed to
streets with few buildings fronting onto them.
• Network facilities should be well maintained. Burned out lights,

overgrown paths, or damaged sidewalks/bike routes indicate a general state
of disrepair and detract from the feeling of security of the area.
While CPTED encourage the practice of designing well-lit urban spaces,

lighting is not always the best solution. For example, lighting along an off-
road facility can create shadows that potential offenders may hide in. A user
of the trail will not be able to see the potential offender whereas if there were
no lights, the user’s eyes would be adjusted to the darkness and would have a
better chance of detecting the potential offender. This factor should be
considered by HRM and partners in the detailed design phase of new
facilities.
It also should be noted that when incorporating CPTED principles into the
design of the AT network, care should be taken to avoid creating sterile and
un-interesting routes with little or no natural features. A balance should be
struck between aesthetics and safety.
In more developed urban areas of the Halifax Region, the application of

CEPTD principles should be considered as part of a larger urban design
strategy. Successful implementation will then serve to help reduce
opportunities for criminal behavior but also enhance and beautify the urban
fabric and create even more successful urban spaces. This balanced

4-14
approach to weighing design options is sometimes referred to as the “Jane

Jacobs Test”.
Within established regional planning visioning practices, the application of

CPTED should not exist in conflict with the creation of a livable, humane
and “experiencially exciting city”. CPTED is an important part of the urban
design process but should be integrated with community goals, functionality,
aesthetics and the productive operation of urban spaces on a site by site
basis.
4.6 The Regional and Community Network
4.6.1 Overview
The recommended regional and community network is presented on a series

of maps at the end of this section. Exhibit 4.3 shows the proposed AT zones
for pedestrian infrastructure while Exhibit 4.4 details the cycling and trails
routes and Exhibit 4.5 the network facility designations. Exhibits 4.6 to 4.8
present the proposed facilities for Rural Commuter Centres, Rural Commuter
District Centres and Rural Commuter Local Centres.
The overall system is based upon the principal of providing neighbourhood

connectivity within a framework of on-road and off-road routes that connect
communities and neighbouring municipalities. Further, the AT Plan is
designed for integration with the Regional MPS, particularly in respect to
transit systems and residential growth. In addition to the recommended
network, other complementary initiatives are required to increase non-
motorized travel. These complementary initiatives should include adequate
parking and trip-end facilities for commuters such as showers and change
rooms, streetscaping that creates AT friendly environments, the application
of CPTED principles in detailed design and a transit system that is
supportive of AT (including features such as bike racks on buses, adequate
access to transit facilities, and bicycle storage facilities at transit and ferry
terminals).
Cycling and trail routes contain a mix of on-road and off-road facilities under
a recommended primary (spine) system and supporting secondary
(community) system. Key features of the network are:
• A defined system of on-road cycling routes.
• The linking of the regional trail system into Peninsular Halifax and major
employment/destination areas. For links to the Head of St. Margaret’s Bay
and Bedford/Sackville, missing sections from the Lakeside Industrial Park
and Bedford are addressed by a recommended rails-with-trails network.

4-15
• The development of a new off-road multi-use trail that circles Peninsular

Halifax and provides gentle grades that connect the Seaview Park/Fairview
Cove area (Bedford/Sackville and Head of St. Margaret’s Bay access
point) with Downtown Halifax (including the MacDonald Bridge access
point from the Dartmouth side of the Halifax Harbour), Point Pleasant Park
and the Armdale Rotary (access point to Mainland South). The result is a
major new off-road multi-use trail for tourists and residents to experience
Peninsular Halifax and points beyond by walking, cycling and in-line
skating while major employment areas and the universities are connected
to numerous residential areas.
• A new multi-use trail that links the Dartmouth / Shubenacadie Canal

system to the Halifax International Airport. The result is a link for airport
workers and a major opportunity to increase the number of tourists who
can access Nova Scotia at the Halifax International Airport, assemble their
bicycle at the Air Terminal Building and then cycle into the urban core and
beyond.
• Linking of the Trans Canada Trail (Salt March Trail Head) into the urban
core and points beyond.
Summer St. near Downtown
Halifax. • Linking of existing and major new residential areas (Bedford South,
Bedford West, Russell Lake) into existing bus terminals and proposed
transit hubs.
The recommended pedestrian infrastructure is neighbourhood and

community based. Facilities are included to provide an effective alternative
to the private automobile for trips to and from schools, recreation facilities,
community shopping areas, bus terminals and proposed transit hubs under
the Regional MPS. The recommended distance from these destinations for
pedestrian facilities is 550 metres. The recommendations take into account
the planned urban, suburban and rural centres under the Regional MPS.
In most urban and suburban areas, pedestrian facilities are already installed.
In rural settlements, there are many opportunities for new facilities.
4.6.2 The Primary System
The spine system consists of AT facilities designed to provide direct links

between major nodes throughout the Halifax Region. These nodes include
commercial, employment, institutional, residential and tourist destinations
and rural communities, and serve as the “backbone” to the AT network.
Spine pedestrian and cycling (wheeling) routes will serve frequent utilitarian
(commuter) and recreational AT users, although occasional utilitarian and
recreational cyclists and pedestrians will use these routes where they pass
through developed neighbourhoods or connect to transit facilities.

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The spine system is further broken down in a network of cycling routes and a
system of pedestrian zones. The cycling spine network consists primarily of
on-road bike (bike lanes, paved shoulder bikeways, signed-only routes) and
some major “regional” linear off-road multi-use trails. The cycling network
consists of specific route segments that together form on overall network.
Where possible and appropriate, the spine system uses higher-order facilities,
such as dedicated bike lanes. However, many arterial and collector roads in
the Halifax Region (particularly in Peninsular Halifax) do not have the
required right-of-way to accommodate dedicated bike lanes. In these cases,
signed only routes are designated.
The pedestrian spine zone system consists primarily of sidewalks and linear
off-road multi-use trails. The pedestrian system zones feature an increasing
density and order of pedestrian facilities as population density increases.
Mid-block crossings and/or pedestrian over/underpasses will form part of
this system (as detailed design is completed), particularly in urban and
suburban areas. Three concentric zones are recommended for this system,
urban, suburban, and rural.
Urban Areas
The pedestrian spine system in urban areas is located

primarily on arterial and collector roads. Most arterial
and collector roads in urban areas have sidewalks on both
sides of the road. In urban areas with a particularly high
concentration of pedestrian activity, extra consideration
(in detailed design) should be given to pedestrian friendly
streetscape design and related features such as pedestrian
level lighting, which will supplement lighting intended
primarily for the adjacent roadway.
Suburban Areas
In suburban areas, the pedestrian spine system is

primarily located on arterial and collector roads. As with
urban areas, these roads mostly have sidewalks on both
sides. Sidewalks may be narrower in suburban areas
where demand is lower, but should still be at least 1.5
metres in width.
Rural Areas
In rural areas, the pedestrian spine system is primarily located along rural
arterial roads and provincial trunk highways. Where pedestrian demand
exists, sidewalks should be provided on both sides of the road. In some rural
areas with lower pedestrian demand, a paved shoulder may substitute for
dedicated sidewalk facilities. Transit facilities, major employers, schools

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and other key destinations should have direct sidewalk access in all
pedestrian zones.
The uniqueness of rural communities requires special attention because of

legacy transportation systems (that often date back hundreds of years) and
changing user needs. The SGE Acres Team recommends a "Healthy and
Active Rural Communities Program" for all of the designated rural
communities under the Regional MPS to refine the recommendations in the
AT Plan. This refinement could follow a community economic development
approach where each community engages a broad cross-section of residents
(youth to seniors) to arrive at their own plan based upon the vision, goals and
objectives, network objectives, route selection principles and facility
descriptions contained in the AT Plan. To guide this work, the process could
be facilitated by the Strategic Joint Regional Transportation Planning
Committee as proposed in the new Regional MPS, the Halifax Regional
Development Agency or the Province of Nova Scotia. The intended outputs
are:
1. An on-road or multi-use trail walking zone (+/- 550 m) from residential

areas to schools.
2. An on-road or multi-use trail walking zone from the dominant residential

area(s) to recreation facilities (including the regional trail system - if
applicable).
3. The desirability for rural highway shoulder upgrades (a 2.0 metre paved
shoulder on each side is recommended) within the community and to
adjoining rural communities or other important destination areas.
To assist communities in this process, a series of maps are included at the

end of this section that show schools (with the 550 m zone), recreation
facilities with on-road links to the community centre (if applicable), existing
sidewalks (if applicable), existing or proposed location of transit facilities
(with on-road links - if applicable) and proximity to the regional trail system.
The rural communities included on the series of maps reflect the following
community definitions under the Regional MPS:
Rural Commuter Centres: Fall River, Lake Echo, Porters Lake and Upper
Tantallon.
Rural Commuter District Centres: Enfield and Musquodoboit Harbour.
Rural Commuter Local Centres: Hatchet Lake, Hubbards, Hubley, Sambro,

Indian Harbour, Waverley, Whites Lake, Jeddore, East Preston, Cherry
Brook, Lake Loon and North Preston.

4-18
Finally, existing Trans Canada Trail links, such as the Beechville-Lakeside-

Timberlea Trail and the Salt Marsh Trail, are incorporated as major arteries
for off-road AT movement. Critical new routes, such as the Peninsular
Halifax to Bedford/Sackville connection and to the Halifax International
Airport, will insure an off-road multi-use trail for every principal regional
access point: South Shore, Annapolis Valley, Eastern Shore, East Hants and
Colchester County. With the recommended facilities, the urban core will
become the hub for off-road travelers in Nova Scotia.
4.6.3 The Community System
The secondary community system is recommended to consist of routes that

feed into the spine system. Community routes are intended to serve both
utilitarian and recreational AT users. Routes along this system may be less
direct than the spine system routes but will typically take advantage of
quieter streets (less traffic), river and valley systems and parks while
providing links to local destinations such as transit facilities, schools,
residential areas, tourist destinations, local commercial areas, parks and
recreational areas. The community system also provides opportunities for
alternatives to the spine system for longer-distance or primarily recreational
users who prefer a quieter walking and cycling environment.
As with the spine system, the community system is further broken down in a
network of cycling routes and a system of pedestrian zones. The
recommended cycling community network consists primarily of on-road bike
facilities (bike lanes, paved shoulder bikeways, signed-only routes) and some
major “regional” linear off-road multi-use trails. The community cycling
network consists of specific route segments that both link together and act as
feeders to the spine network. The cycling community network will consist
AT options should be mostly of signed-only bike routes on local residential or collector streets as
made available at the well as off-road multi-use trails. Bike lanes and paved shoulders are also
neighbourhood level and incorporated where appropriate.
include all potential
users.
The pedestrian system zones feature an increasing density and order of
pedestrian facilities as population density increases. Mid-block crossings
may be required in this system (when detailed design is conducted),
particularly in urban and suburban areas. As any AT linkage within a
community has inherent value to the overall network, proposed closures of
pedestrian or otherwise linkages within existing developments should be
carefully considered by HRM staff in terms overall AT objectives.
The pedestrian community system in urban areas is located mostly on local

streets. All local streets in urban areas should ideally have sidewalks on both
sides of the road.
In suburban areas, the pedestrian community system is also mostly located

on local streets. These streets should have as a minimum a sidewalk on one

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side of the road. Where possible, sidewalks should be provided on both sides
of the road.
In rural areas, the pedestrian community system should be mostly located

along local streets. Where pedestrian demand exists, sidewalks should be
provided on one or both sides of the road. In some rural areas with lower
pedestrian demand, a paved shoulder may substitute for dedicated sidewalk
facilities.
In Go for Green's 2005 Canada-wide Survey on Active Transportation, more

than 60% of the population declared that they would walk and/or wheel
(bicycle, inline skate, etc.) more often if safe sidewalks/pathways existed
close to their homes, schools, and/or places of business. No other variety of
physical activity facility or public infrastructure comes close to obtaining the
same levels of support.
4.6.4 Neighbourhood and Community Connectivity
The AT Plan acknowledges that the majority of people who will use AT
options will do so most often in the immediate proximity of their home,
work/school, or shopping locations. Any trip that requires five minutes or
less is almost always easier by foot than by car while walking/riding trips of
up to 30 minutes in length are common for engaged walkers/riders.
The recommended network recognizes that it is essential for neighbourhoods

to be connected internally. Decreased automobile traffic on local streets,
replaced by increased AT use, will improve the safety of residents and assist
in creating an improved sense of community. For there to be increased AT
use, there must be safe, connected routes from where people live to where
they wish to go. Youth, as one of the most frequent users of non-motorized
forms of transportation, were engaged in the process of identifying where
connections are missing throughout the development of the AT Plan.
The Halifax Region contains a land mass area similar to Prince Edward
Island, and the need for community connectivity through on-road and off-
road connections is vital. The AT Plan includes options to connect urban
and suburban neighbourhoods with each other and two or more rural
communities in proximity. These inter-connected communities will benefit
from the availability of safe walking/wheeling routes and especially safe
walking alternatives to the private automobile.
To assist with travel distances for both pedestrian and wheeled travel, access
to, and linkages with, transit facilities and proposed transit hubs is provided.
All transit stops should ideally be connected to walkways and sidewalks.
Land use controls and regulations, including an expanded role for capital
cost contribution charges under amendments to the Municipal Government

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Act (see Section 5 for details), will enhance transit use and its connectivity to
walking/wheeling facilities.
Most connections between neighbourhoods are provided by the primary AT

system. However, there are also some linkages created by the community
(secondary) network.
4.6.5 Off-Road Facilities
Off-road facilities are an important element for any AT network. They

provide safe options for AT use that helps to improve the attractiveness of
walking/biking to new users. There are safety benefits associated with off-
road trails, and their separation from motorized modes makes them desirable
locations for those currently not using AT modes to learn and become more
comfortable.
There are considerable benefits to the inclusion of off-road routes to the AT

network. These facilities will:
• Connect off-road trails through the urban core.
• Complete the Trans Canada Trail through the Halifax Region.
• Permit bicycle tourist access from the major neighbouring regions: South
Shore, Eastern Shore, Annapolis Valley and the Halifax International
Airport.
• Provide recreational destinations for neighbourhood pedestrian/bicycle

trail systems.
• Provide destinations such as parks and specialized trail networks: Bluff

Trail, Long Lake Provincial Park, Terrance Bay Wilderness Protected
Area, Crowbar Lake Trail, Waverley-Salmon River-Long Lake Wilderness
Area, Waverley Game Sanctuary and White’s Lake Wilderness Protected
Area.
There is no question, based on the experience of

Canadian cities such as Ottawa, Calgary, Montréal,
Vancouver, Victoria and Fredericton, that the
development of an off-road arterial trail system can
increase the use of walking/wheeling for a variety of
purposes. These six cities all rank among the highest in
Canada for commuting mode share using AT,
especially by bicycle. These facilities are one of the
factors frequently cited as defining a high quality of life
available in these cities.

4-21
4.6.6 Benefits of the Recommended Active Transportation Network
The recommended network contains many benefits. These benefits are

summarized under benefits to network users, government, neighbourhoods
and non-users
Benefits to Network Users
These benefits include:
• Integrating the AT network into the Regional MPS.
• Completing the Trans Canada Trail.
• Providing an on-road and off-road route through the urban core.
• Providing for connecting current and planned routes into a system of

interconnected on-road and off-road walking and bicycling trails.
• Integrating Active Transportation with the public transit system.
• Enabling access to more destinations, making Active Transportation a

more practical alternative.
• Placing walking and wheeling on the planning agenda with all future land
development.
• Providing trails with status on the planning agenda.
• Recognizing the benefits of Active Transportation usage to health and

tourism.
• Creating a safer setting for Active Transportation engagement by the

application of CPETD principles.
Benefits to Government
• Helping to make the Halifax Region one of the leading communities in

Canada for linking on-road and off-road transportation options.
Example of separated urban
bicycle lane.
• Creating a primarily off-road trail into the urban core.
• Completing the Trans Canada Trail.

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• Permitting Active Transportation tourist access from the major

neighbouring regions: South Shore, Eastern Shore, Annapolis Valley and
the Halifax International Airport.
• Allowing access to destinations through neighbourhood pedestrian/bicycle

trail systems.
• Providing destinations such as parks and specialized trail networks: Bluff

Trail, Terrance Bay Wilderness Protected Area, Crowbar Lake Trail,
Waverley-Salmon River-Long Lake Wilderness Area, Waverley Game
Sanctuary, White’s Lake Wilderness Protected Area, Shubenacadie Canal
and Long Lake Provincial Park.
• Protecting public (and rail) rights-of-way from loss through piecemeal

abandonment.
• Highways with paved shoulders are easier to maintain, as paved shoulders

provide structural support to the pavement, discharge water further from
the travel lanes (reducing the undermining of the base and subgrade),
provide space for maintenance operations and possible snow storage and
provide possible space for portable maintenance signs.
• For Active Transportation facilities that include paved areas, transit

vehicles will have a place to pull over next to the curb (out of the traffic
stream) and emergency vehicles would have room to maneuver around
stopped traffic with the result being decreased response time.
Benefits to Neighbourhoods
• A traffic calming effect if bike lanes are installed by narrowing travel

lanes.
• Better definition of travel lanes where a road is wide (lessens the “sea of
asphalt” look).
• An improved buffer to trees, allowing more plantings of green canopies,

which also has a traffic calming effect.
• Slower moving motorized traffic.
Benefits to Non-Users
• Making neighbourhoods safer by reducing traffic volumes.

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• Improving air/noise quality through reduced traffic volumes.
• Reducing crime with the application of CPTED principles by providing

more “eyes on the streets and trails”.
• Possibly reducing the likelihood of automobile collisions.
• Possibly lowering taxes through reduced need to develop more costly

automobile infrastructure.
• More walkable communities.
• Highways with paved shoulders will have traffic benefits as paved

shoulders provide more intersection and safe stopping sight distance, allow
for easier exiting from travel lanes to side streets and roads (also a safety
benefit), provide greater effective turning radius for trucks; provide space
for off-tracking of truck's rear wheels in curved sections; provide space for
disabled vehicles, mail delivery and bus stops; and provide space for
bicyclists to ride at their own pace.
• The creation of bicycle lanes will benefit motorists through greater ease
and more opportunities to exit from driveways (thanks to improved sight
distance); greater effective turning radius at corners and driveways that
allows large vehicles to turn into side streets without off-tracking onto the
curb; and improved buffering for parked cars that makes it easier for
motorists to park and enter and exit vehicles safely and efficiently.
4.6.7 Comments On Rails-With-Trails
A high profile feature of the AT Plan is the introduction of rails-with-trails

links from Bedford and the Lakeside Industrial Park area into Peninsular
Halifax. It is assumed that the Lakeside facility will be fully abandoned by
CN Rail during the 20-year implementation period as the operator has started
the regulatory process. The Bedford link will require more detailed planning
and engineering investigations to determine the feasibility and cost of
integration with an operational rail line. With both of these links, an ideal
scenario is a rails-with-trails network that also contains a reserved commuter
rail corridor.
Millview on the CN Rail line. The AT Plan calls for on-road AT facilities along the Bedford Highway
north of the Kearney Lake Road intersection while a rails-with-trails (multi-
use trail) is recommended from the Meadowbrook Drive area of Bedford into
Peninsula Halifax. The recommendations have this rails-with-trails facility
linking into the Bedford Waterfront (proposed location of the high speed
ferry link) with direct pedestrian and bike links across the CN Rail line
behind the Mill Cove Shopping Centre (link to Hammonds Plains Road), the
new south entrance to Phase II of the Bedford Waterfront project, at

4-24
Millview/Hogan’s Point and other locations including Mount Saint Vincent

University. At Millview, the CN Rail line transitions from two to one track
with the abandoned line located on the east (basin) side. The result is more
space to integrate a multi-use trail from Millview to Bedford. South of
Millview, there are physical constraints and more severe grades that will
require more detailed investigation prior to a final decision on route
feasibility and selection.
There are currently over 100 rails-with-trails projects in the United States
and Nova Scotia has a facility in Windsor on the former DAR line
immediately beside Highway 101. The Canadian experiences are increasing
(Montreal, Laval, Waterloo, St. Thomas, Peterborough and Toronto). Both
rail companies and trail developers prefer design guidelines over national
standards for facilities. This is the recommended approach as setback
distances (the distance between the paved edge of the trail and the centreline
of the closest active rail track) should be assessed from the perspective of:
1) Type, speed and frequency of trains in the corridor

Rails-With-Trails facility in 2) Sight distance
Quebec.
3) Maintenance requirements and access provisions
4) Historical problems
5) Security
6) Corridor and adjacent waterlots ownership
7) Pinch points (confined areas)
8) Elevations changes
9) Risk of injury
10) Cost.

4-25
Exhibit 4.3
Proposed AT Zones: Pedestrian Infrastructure

4-26
Exhibit 4.4
Proposed AT Routes: Cycling and Trails

4-27
Exhibit 4.5
Proposed Network Facility Designations

4-28
Exhibits 4.6
Proposed Facilities : Rural Commuter Centres

4-29
Exhibit 4.7
Proposed Facilities: Rural Commuter District Centres

4-30
Exhibit 4.8
Proposed Facilities – Rural Commuter Local Centres

4-31
5 Recommended Implementation Tasks And Schedule

5.1 Introduction
The Active Transportation Plan is comprehensive and strategic in nature. As

such, it will need to be implemented efficiently through an incremental
process over a 20-year period, with each step or action building upon
previous ones. Although detailed, the AT Plan is designed to be flexible so
that HRM and partners can adapt it to changes, constraints and opportunities
as they arise, while still maintaining the Plan’s vision, goals and objectives.
This section outlines a clear and feasible strategy for implementing the
recommendations. It sets out a process, identifies new (HRM own-source)
funding mechanisms, lists priorities and outlines an educational and
promotional campaign framework. It also contains policy and technical
recommendations, and preliminary estimates of probable costs for
infrastructure and programming.
5.2 Implementing The Plan
The success of the Active Transportation Plan will be measured in part by

the ease with which it can be implemented. Ease of implementation can be
defined by six criteria:
1. A practical strategy that identifies a recommended approach, including

guidelines to implement the Plan, and also addresses priorities and
phasing.
2. The quality and clarity of the Plan in terms of its vision, goals, objectives
and principles that guide it, and the set of recommendations that provide
the strategy to achieve the Plan.
3. A source of ongoing funding that is defined by HRM and not overly

influenced by policy directives from the Province of Nova Scotia and the
Government of Canada.
4. An administrative structure responsible for implementing all components

of the Plan, as well as for coordinating multi-departmental and
jurisdictional resources, including senior government funding
commitments.
5. Funding by the Regional Council and HRM’s partners for the entire Plan
preferably within the recommended 20-year timeframe.
6. Monitoring of the Plan to assess implementation results and to serve as

feedback to refine on-going implementation.

5-1
Sections 1 through 4 established an Active Transportation Plan for the

Halifax Region that is based on a clear vision, goals and objectives, and
guiding principles as well as a set of supporting objectives and
recommendations. Section 5 sets out the actions that are recommended to
successfully implement the Plan.
5.3 Phasing
Implementation of the Active Transportation Plan should occur in two

phases:
• Phase 1: Years 1 to 5
• Phase 2: Years 6 to 20.
5.4 Network Priorities
Phase 1 priorities were identified by applying the network development

approach from Section 4 with consideration to the following strategic
actions:
• Commence developing the spine network connecting major nodes in urban

and suburban areas.
• Commence developing links within and between the rural group centres
specified in the Regional MPS by a community consultation process
(Health and Active Rural Communities Program).
• Connecting existing on-road facilities to transit terminals and proposed

transit hubs under the Regional MPS.
• Improving walking and cycling access within neighbourhoods based upon

a consultation process with local residents.
• Designating Active Transportation corridors for those parts of the network

that will be installed in undeveloped or alternative use areas in Phase 2.
• Commencing formal discussions with CN Rail and other major property

owners to facilitate the feasibility assessment of Active Transportation
links across their lands. While acquiring land to expand a road ROW or
create an off-road AT corridor may be viewed as not the most effective
allocation of funds, the lack of action in Phase 1 could create major gaps in
the network and decrease the number of users over the longer term.
• All on-road routes that are designated as part of the spine network should
be marked and signed in Phase 1.

5-2
• Scheduling network implementation with already planned and/or

scheduled capital road and servicing projects as detailed in HRM’s
approved capital projects.
• Commencing formal discussions with Service Nova Scotia and Municipal

Relations regarding amendments to Section 274 of the Municipal
Government Act to allow capital cost contribution charges to be applied at
both the building permit and subdivision by-law approval stage with
Active Transportation charge areas defined as urban, suburban and rural in
accordance with the Regional MPS.
• For all roads and rural highways in the Halifax Region that are part of the
on-road network and will be resurfaced or reconstructed, consideration
should be given to improving cycling facilities. For example, the
reconstruction of a collector road could include a formal bike lane in place
of a wide curb lane.
• All on-road routes that are designated as signed-only routes (whether

approved as a capital project for 2006 to 2008 or not) should have signs
posted in Phase 1.
• A formal process should commence for the possible transfer of assets (off-
road trails) from community groups in rural areas if these trails form part
of the off-road multi-use trail network.
Exhibit 5.1 shows the phasing priorities for implementation and Exhibit 5.2
contains the proposed implementation schedule with preliminary estimate of
probable costs. Each phase of the network is assigned a colour. Flexibility
will be required to implement the network part of the AT Plan as some
facility types and route segments proposed for implementation in Phase 1
may prove not to be feasible because of other HRM priorities and other
external factors. In theses settings, HRM should investigate interim
solutions.
The estimated implementation cost is around $100 million over 20 years

based on HRM construction costs in 2005, a 35% contingency and net HST.
In addition, maintenance costs are estimated at around $200,000 by Year 6
and $2.4 million by Year 20. Major cost components are $11.25 million for
paved shoulders on rural highways (Province of Nova Scotia allocation) and
$56 million for sidewalks (and selective suburban subdivision paved
shoulders). On an average annual basis, the cost is around $5 million.

5-3
Exhibit 5.1
Implementation Priorities By Phase

5-4

5-5
5.5 Policies, Trail By-Law and Municipal Standards Recommendations
5.5.1 Policy Recommendations
To implement the AT Plan, the following policy recommendations are put

forward.
1. The vision, goals and objectives, and network development approach

contained in this report and the companion document (planning and
design guidelines, draft trail by-law) should be formally adopted by
Regional Council. They should also be formally reviewed on an annual
basis during implementation. To facilitate implementation, the Route
Selection Evaluation Criteria (Exhibit 4.2) should be formally adopted
by HRM as an internal policy.
2. The capital works activities of HRM, the Province of Nova Scotia and
other major land owners/developers should make Active Transportation
modes more convenient and less risky by removing barriers to walking,
cycling (including youth oriented travel) and improving connections to
public transit. Improvements should include connections between
communities and within new residential and commercial areas.
3. HRM, the Province of Nova Scotia and partners should support efforts to
achieve a greener and healthier Region by encouraging residents and
visitors to choose Active Transportation modes as part of a commuting
and fitness regime and to reduce greenhouse gas emissions through less
dependence on the private automobile for travel, especially for short
distance trips.
4. HRM, the Province of Nova Scotia and partners should continuously

monitor the AT Plan with a focus on the central goal of doubling the
number of people who use AT modes for a portion of their entire trip
(particularly commuting).
5.5.2 Enact A Trail By-Law
The Draft Trail By-Law is included in Appendix D. It defines Active

Transportation and also defines the off-road system in the AT Plan as
“improved trails”. Dogs on leashes are recommended for the entire
improved off-road trail network while ATV’s are only allowed to cross the
network in rural areas at designated crossing locations. These locations can
be selected by HRM in consultation with community groups. It is
recommended that the enforcement of the by-law be carried out by a trail
enforcement officer who will have expanded powers to the dog enforcement
officer in HRM By-Law 100 respecting dog control. In years 1 to 3 of
implementation, HRM should work with the RCMP to establish a region-
wide enforcement regime.

5-6
To enact a Trail By-Law, it is recommended that:
5. HRM proceed with drafting a formal by-law that adheres to the intent of
the Draft Trail By-Law and work with the RCMP on region-wide
enforcement.
5.5.3 Technical Recommendations
Technical recommendations and potential standards for all elements of the

Active Transportation system are outlined in extensive detail in the
companion report. Guidelines for off-road facilities as well as on-road
standards and solutions for addressing potential transportation,
communication and support facility needs are provided and are
recommended to be followed within the realm of appropriate engineering
judgment. For ease of reference, the technical recommendations are
summarized in Appendix E. They are grouped by planning considerations,
design parameters, system facility types, system design features, bicycle
parking, network amenities, route and system signing and maintenance. A
total of 125 recommendations are put forward. To ensure consistent
standards for the development, operation and maintenance of the AT
network, it is recommended that:
6. HRM and partners use the technical recommendations in Appendix E

and the Technical Appendix: Facility Planning, Design Guidelines and
Draft Trail By-Law to implement the Active Transportation Plan.
7. The priorities in Exhibits 5.1 and 5.2 should guide implementation.
5.6 Human Resources
The effective implementation of the Active Transportation Plan will require

dedicated staff positions. In this context, it is recommended that:
8. HRM allocate three full-time equivalent positions to implement the AT

Plan (capital project integration, community liaison and trail by-law
enforcement). Payroll and expenses are assumed to be re-allocations of
current staff. (If new staff are hired, costs are estimated at $200,000 per
annum commencing in 2007/08) The community liaison staff person
will coordinate HRM’s current staff (Community Developers) and be
responsible for the Healthy and Active Rural Communities Program (See
Section 4.6.2) and upgrades to sidewalks at the neighbourhood level in
urban and suburban areas. In the new rural-type subdivisions, the focus
will be on paved shoulders which will provide the same benefits but at a
lower cost.
Changes are also recommended to the Advisory Committees that deal with
aspects of Active Transportation. It is recommended that:

5-7
9. The mandate of the HRM Bikeways Advisory Committee be expanded

to include Active Transportation. This new Advisory Committee and the
Advisory Committee for Persons with Disabilities should be given a
$10,000 annual budget for AT-related activities (including surveys).
5.7 Partners, Land Ownership and Asset Management
There are portions of the current spine network that are managed by
community groups while parts of the recommended network will be located
on non-HRM lands. The consultation program identified a desire by
community groups to have multi-use trails transferred to HRM and for
maintenance and liability insurance to also be a responsibility of the
Municipality. To address the role of partners and asset management, it is
recommended that:
10. HRM commence a formal process for the possible transfer of multi-use
off-road trail facilities from community organizations where these assets
form part of the AT spine network.
11. Formal discussions commence with private land owners to secure

easements, options or agreements of purchase and sale. Easements are a
preferred option because of lower costs. These discussions should
included CN Rail, the Halifax Port Authority, the Halifax-Dartmouth
Bridge Commission, the Halifax Regional Water Commission, NSP Inc.,
Maritimes and Northeast Pipeline, the Department of Transportation and
Public Works, DND and Canada Lands Company Limited. The private
holds that are crossed by the AT network are shown in Exhibit 5.3.
While the costs of easements or land purchases are subject to
negotiations, an annual budget of $100,000 is allocated for unspecified
actions. This budget acknowledges land acquisition and easement costs
currently being paid by HRM.

5-8
Exhibit 5.3
Network Facility Designations With Land Ownership

5-9
5.8 Funding Mechanisms
5.8.1 Own-Source
The implementation of the Active Transportation Plan will require a

continuous source of new cash flow for HRM. Security of this cash flow
cannot be obtained from senior government programs that can be altered and
could experience a shortage of funds because of demands from other
municipalities.
The SGE Acres Team has reviewed the Municipal Government Act in the
context of HRM’s current policies and programs, recommendations in this
report and the new Regional MPS. Based upon this review, a preferred
reliable funding strategy is to apply a capital cost contribution charge (also
called a development cost charge or development levy) to new
developments. This charge would be based on service standards for AT
(highest standards for the last 5 to 10 years or current standard) and the
portion of costs directly related to new development. In new residential
areas, this calculation is easy to determine because no services are present
while urban and infill projects must be based upon charges that reflect
current and new (higher) standards.
Under the projected housing demand in the Regional MPS, there should be
58,770 new units over the period to 2026 with the distribution being around
25% urban, 50% suburban and 25% rural. A charge of $250 per unit, for
example, at the subdivision approval or building permit stage, will generate
almost $15 million in new own-source revenue.
The current capital cost contribution (ccc) policy of HRM (approved under
Section 274, Infrastructure Charges of Part IX – Subdivision of the
Municipal Government Act) has the following features:
• A charge area is defined for cost sharing (new and expanded streets, water,
wastewater and stormwater systems; new traffic signs and signals; and new
transit bus bays) to be imposed in a subdivision by-law. Under HRM’s
current ccc policy, these roads and infrastructure charges are part of the
Master Planning process for major new subdivision. Three Master
Planning areas have been designated in HRM (Bedford South-Wentworth
Estates, Bedford West and Russell Lake.) Another area (Port Wallace)
could possibly be designated.
• The developer(s) of the Master Planning area then work with HRM to
determine the full build-out and the portion of new infrastructure
(oversizing, capacity thresholds for new facilities like highway
intersections to accommodate capacity limits on other roads) that is
directly charged back to new units.

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• The cost of the charge is fixed for the full build-out period (say 20 years)
as HRM calculates the cost of new infrastructure, carrying costs and
uptake rates.
• The result is HRM is revenue neutral when full build-out occurs.
To expand the current ccc policy, Section 274 of the MGA must be amended
to define charge areas for the development of Active Transportation
facilities. These charge areas must be defined as urban, suburban and rural
in accordance with the definitions in the Regional MPS. This geographic
breakdown will allow HRM to calculate the percentage of demand that will
come from existing taxpayers and new taxpayers. In rural areas, HRM must
pay particular attention to a ccc charge structure that could create an undue
financial burden on the traditional rural population (fixed and low income
residents) if an excessive portion of new capital costs are included in the base
rate or area rates.
12. To implement an own-source funding framework under amendments to

Section 274, Infrastructure Charges of Part IX – Subdivision of the
Municipal Government Act, it is recommended that a formal process be
started with Service Nova Scotia and Municipal Relations.
5.8.2 HRM and Partner Funding Commitments
Funding from senior levels of government and corporate partners should be

pursued to implement the AT Plan. Possible funding sources could include
Federal and Provincial gas taxes, the Canada-Nova Scotia Infrastructure
Program, the Moving On Sustainable Transportation (MOST) program of
Transport Canada, the Urban Transportation Showcase Program of Transport
Canada, corporate environmental funds and corporate donations. It is
reasonable to assume that changes at the Federal level will result in priority
adjustments on urban, infrastructure and environmental issues with a greater
emphasis possibly placed on tax credits as opposed to program funding. To
pursue a coordinated approach to partner commitments, it is recommended
that:
13. HRM facilitate an annual Funding Partners Workshop to determine

multi-year commitments. The commitments should be reviewed on an
annual basis and integrated with HRM’s capital costs and maintenance
budget.
5.9 Probable Capital Costs, Maintenance and Financial Considerations
The preliminary estimate of probable costs is based upon the following

assumptions:

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1. All values are 2005 constant dollars ($2005) and include a 35%
contingency and net HST.
2. All values adhere to existing Red Book standards or technical

recommendations contained in the Technical Appendix.
3. Staff required for implementation will be a reallocation of current HRM

staff and not new hires.
4. Funding commitments from senior governments and other sources will

be determined by HRM prior to implementation. No cost-sharing
assumptions are included, beyond the Department of Transportation and
Public Works for paved shoulders on rural highways.
5. Pavement marking treatments (both sides) for bike facilities will occur in
Phase 1 at an estimated cost of $20,000 per kilometre.
6. The retrofitting of bike facilities into the Halifax Region’s streets must
be blended with other HRM capital project objectives. The schedule will
be determined by HRM staff. The estimated cost per kilometre is
$460,000.
7. On-road bike lanes associated with new construction will involve

approximately 17 kilometres. Five kilometres are assumed for Phase 1
for the planned Burnside to Sackville connection.
8. Paved shoulder (1.5m) surfacing of the spine network is recommended in

Phase 1 for 15 kilometres of Kearney Lake Road, Hammonds Plains
Road, Northwest Arm Drive and a portion of Cobequid Road. Costs are
estimated at $55,000 per kilometre but this number could increase to
$290,000 depending upon site specific conditions.
9. Paved should (2.0m) surfacing of 20 kilometres of rural highways is

recommended with an assumed 5.0 kilometres in Phase 1. The actual
schedule and location of upgrades will be determined by rural
community consultations. It is assumed that costs will be a budget
responsibility of the Department of Transportation and Public Works.
10. The probable cost of paved shoulders associated with other new road
construction will be dependant upon HRM’s future priorities and budget
allocations.
11. All on-road routes should be signed in Phase 1. This work will involve
341 kilometres with an average of eight signs per kilometre at $500 per
sign.

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Exhibit 5.4
Network Development - Preliminary Estimate Of Probable Costs
UNIT PRICE
2005
SHORT TERM (km) LONG TERM (km)
ITEM PROPOSED UNIT DOLLARS 2006-2011 COST 2012-2026 COST NOTES/COMMENTS/ASSUMPTIONS
On-Road Bike Lanes

1. Bike Facilities (Both Sides) - Pavement Marking Treatment 149.0 per km $20,000 149.0 $2,980,000.00 0.0 $0.00 All recommended bike facilities to be marked in Phase 1.
2. Bike Facilities (Both Sides) - Retrofitting 0.0 per km $460,000 0.0 $0.00 0.0 $0.00 Dependant on HRM priorities and budget.
3. Bike Lanes Associated With New Road Construction 17.0 per km $170,000 5.0 $850,000.00 12.0 $2,040,000.00 Burnside - Sackville connection is assumed to be short term.
Subtotal Bike Lanes 166.0 154.0 $3,830,000.00 12.0 $2,040,000.00
On-Road Paved Shoulders

Kearney Lake Road, Hammonds Plains Road, Northwest Arm Drive, portion of Cobequid Road. Costs could increase to $290,000
4. Paved Shoulders Surfacing - Urban & Suburban Spine Network (1.5m) 15.0 per km $55,000 15.0 $825,000.00 0.0 $0.00 per km. if more shoulder work is required.
5. Paved Shoulders - Rural Highways (2.0m) 30.0 per km $375,000 5.0 $1,875,000.00 25.0 $9,375,000.00 Communities as per Regional MPS. Assumed that 5 km. will be constructed in Phase 1 by Province of Nova Scotia.
6. Paved Shoulders Associated With New Road Construction - Urban & Suburban 0.0 per km $130,000 0.0 $0.00 0.0 $0.00 Dependant on HRM priorities and budget.
7. Paved Shoulders Associated With New Road Construction - Rural 0.0 per km $175,000 0.0 $0.00 0.0 $0.00 Dependent upon Department of Transportation and Public Works, and HRM capital budget program.
Subtotal Paved Shoulders 45.0 20.0 $2,700,000.00 25.0 $9,375,000.00
On-Road Signed Only Routes

8. Signed Only Routes (Average of 8 Per Km) 341.0 per km $4,000 341.0 $1,364,000.00 0.0 $0.00 Based in typical HRM tender costs (2005).
Subtotal On-Road Signed Only Routes 341.0 341.0 $1,364,000.00 0.0 $0.00
Pedestrian Network
Costs can range from $980,000 per km. with new curb, gutter and storm sewer to $130,000 per km. for a paved shoulder in areas like
Kingswood. The cost is $230,000 without curb, gutter and storm sewer with local improvement charges being in the 30% range. For
9. Sidewalks Within 550 M of Schools & Regional Growth Centres 350.0 per km $160,000 85.0 $13,600,000.00 265.0 $42,400,000.00 illustrative purposes, $160,000 per km. is selected.
Off-Road Multi-Use Trails

Halifax Urban Greenway and Shubie to Dartmouth Crossing is Phase 1. Peninsular Halifax Trail, Salt March Connector and
10. Multi-Use Hard Surface Trails 45.0 per km $150,000 39.0 $5,850,000.00 6.0 $900,000.00 Morris/Russell Lake is Phase 2. Shubenacadie Canal/Park.
11. Multi-Use Soft Surface Trails To Hard Surface Trail Conversion 15.0 per km $45,000 15.0 $675,000.00 0.0 $0.00 BLT Trail to Bluff Trail Connector, Bedford-Sackville Link, Mainland North Power Corridor.
12. Multi-Use Soft Surface Trails 84.0 per km $100,000 59.0 $1,730,000.00 25.0 $2,500,000.00 Halifax International Airport (To Exit 5A), 1st/2nd Lake Connector, Jack's Lake Link and Lake William Spur.
Land access and engineering feasibility should commence in Phase 1. Costs do not include possible fill and structures along the rail
13. Multi-Use Rails With Trails (Including Access Points) 21.0 per km $300,000 0.0 $0.00 21.0 $6,300,000.00 bed.
Estimated $220,000 per 40m pre-fabricated bridge unit. Additional costs for approaches, etc. not included and will require detailed
14. Prefab. Rail Crossing Bridges 5.0 each $400,000 0.0 $0.00 5.0 $2,000,000.00 site investigations.
Subtotal Off-Road Trails 165.0 113.0 $8,255,000.00 57.0 $11,700,000.00
Implementation
15. See Exhibit 5.2 For Details $4,500,000.00 See Exhibit 5.2 for details.
Totals $29,749,000.00 $70,015,000.00

12. There is an estimated need for 350 kilometres of new sidewalks (or
paved shoulders in areas like Kingswood) within 550 metres of schools
and regional-type growth centres. The costs can range from $980,000
per kilometre (with new curb, gutter and storm sewer) to $130,000 per
kilometre for a paved shoulder in areas like Kingswood. The cost
averages $230,000 per kilometre without curb, gutter and storm sewer
while local improvement charges (portion paid by taxpayers) is in the
30% range. In recognition of these cost differences, a cost of $160,000
per kilometre was selected for illustrative purposes.
13. The recommendations include 45 kilometres of hard surface multi-use

off-road trails. The recommended projects for Phase 1 are the Halifax
Urban Greenway and Shubie to Dartmouth Crossing with all other
projects in Phase 2. The estimated cost per kilometre is $150,000.
14. There are 15 kilometres of existing soft surface trails that are
recommended for conversion to hard surface in Phase 1 at an average
cost of $45,000 per kilometre. These conversions include the Mainland
North Power Corridor.
15. There are 84 kilometres of recommended new soft surface trails mostly
in the Bedford-Sackville area, and a new link to the Halifax International
Airport. Rural links are recommended for Phase 2 but priorities can be
shifted. The estimated cost is $100,000 per kilometre.
16. Twenty-one kilometres of rails-with-trails are recommended (Lakeside

spur and CN mainline from Meadowbrook Drive area of Bedford into
Peninsular Halifax). Land access and engineering for the CN mainline
portion should commence in Phase 1 while the Lakeside spur is still
operational so the abandonment schedule is not known. The estimated
cost is $300,000 per kilometre and this cost does not include fill and
structures. Five prefabricated bridge crossings are included at $400,000
per structure. The location of the structures will be determined by
detailed site investigations.
17. New sidewalk maintenance costs (including snow removal) are assumed
to be $5,000 per kilometre and $4,000 per kilometre for the off-road
spine network. It is assumed that implementation will be 5% per year
over 20 years. The result is approximately $250,000 of new annual
maintenance costs by Year 6 and $2.4 million by Year 20.
5.10 Educational and Promotional Campaign Framework
The success of the Active Transportation Plan will be measured in a healthier

environment and lower rates of overweightness and obesity. An educational
and promotional campaign is critical to success. This campaign will require
partnerships with the Department of Health Promotion and Protection,

5-13
Ecology Action Centre/TRAX and the Heart and Stroke Foundation of

Canada plus others. To implement this campaign, it is recommended that:
14. The new community liaison staff person be responsible for working with
partners to design and implement the program outlined in this section.
An annual program should be prepared with regular monitoring of
outcomes our outputs. The proposed annual budget is $75,000.
The features of this program are detailed in Appendix F.
5.11 Environmental and Related Impacts
The Active Transportation Plan represents a significant investment over 20

years. The justification of these investments becomes very clear when the
following benefits are considered.
Environmental Benefits
• Reduction in Air Pollution: Reducing the amount of vehicles on the road

will reduce the number of hazardous pollutants that are emitted into the
atmosphere by motor vehicles. Bicycles and other AT modes emit no
emissions.
• Noise Reduction: Motor vehicles cause various types of unwanted

noises that cause disturbances and discomfort to residents. This includes
noise for engine acceleration, tire/road contact, braking, horns and car
alarms. 19 AT modes make little noise and are not disruptive to
communities from a noise perspective.
• Land Use: Automobile dependent communities require more land for

road rights-of-way and parking than communities that are not as reliant
on the automobile. 20 Making communities less automobile-dependent by
providing infrastructure for alternate transportation modes, such as
cycling and inline skating, can reduce the amount of space required for
new communities, thus making them easier to manage.
Resident and Tourist Benefits
• Increased Mobility: The AT network will provide forms of mobility for

people who do not have regular access to an automobile (such as tourists
staying in Downtown Halifax) and residents who live in communities
with limited transportation alternatives.
19
Indicators of the Environmental Impacts of Transportation, Office of Policy and Planning, US Environmental
Protection Agency, Washington DC, (www.itre.ncsu.edu/cte), 1999.
20
The Business Case for Active Transportation, The Economic Benefits of Walking and Cycling; Go for Green, March
2004.

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• Improved Liveability: An improved Active Transportation network will

reduce automobile traffic and help to make communities more liveable
by creating an environment that is pleasant and safe without noise and
pollution. This can help to encourage more social interaction within a
neighbourhood and create a stronger sense of community.
Transportation Benefits
• Reduction in Traffic Congestion: Encouraging more people to use Active

Transportation modes, especially for utilitarian purposes, will result in
taking more cars off the road during peak hours, helping to reduce traffic
congestion.
• Increased Physical Activity: Making the investment to include Active

Transportation modes such as cycling into daily commuting habits and
school trips will help promote a healthy and active lifestyle for residents
and visitors.
Economic Benefits
• Roadway Cost Savings: Typical roadway costs include maintenance

costs, safety and enhancement costs and the addition of roadway
capacity through lane widenings or additions. Furthermore, the costs for
road construction, reconstruction and maintenance are usually paid for
by road users through gas taxes, development charges and property
taxes. 21 An emphasis on cycling and other Active Transportation modes
will result in a reduction in roadway costs as bicycles for example, are
lightweight vehicles that take up little space and cause little to damage a
road surface.
In a policy context, the following recommendation should guide all AT

actions in the Halifax Region:
15. The vision, goals and objectives for AT should be the foundation for all
actions and frame HRM decisions that also consider environmental,
visitor and economic benefits.
5.12 Liability and Risk Management
The technical and operational recommendations in the Active Transportation

Plan and Technical Appendix seek to reduce risk. In a policy context, the
following recommendations should provide a policy framework that is risk
management focused:
21
The Business Case for Active Transportation, The Economic Benefits of Walking and Cycling; Go for Green, March
2004.

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16. HRM should endeavour to ensure the safe and comfortable year round
operation of the AT spine network through the adoption, implementation
and monitoring of maintenance practices and standards for both on-road
and off-road routes.
17. HRM and the Department of Transportation and Public Works should
recognize AT modes as important elements towards maximizing efficient
operations of the transportation and land use system, by helping to
reduce the space needed for mobility requirements such as parking, and
being supportive of more intensive land use practices.
18. On a project by project basis, HRM should seek to assign a preferential

status to AT modes as a means to achieve a more sustainable
transportation system, by giving priority to supportive and AT friendly
considerations as part of the transportation and land use planning and
implementation process.
19. HRM and partners should recognize and promote the many benefits of
AT which underline why this mode of transportation must be supported
and given a preferential implementation status. Active Transportation
provides benefits that include community health from exercise,
economic returns from retail sales and tourism, positive environmental
impacts from less air pollution, energy consumption and mobility space
requirements, and increased social interactions.
20. HRM and partners should provide appropriate funding and resource
support to AT programs and initiatives, in recognition of the priority
placed on this efficient and enjoyable mode of transportation, and its
important role in supporting the achievement of the Regional MPS
growth management objectives to create a healthy and environmental
sensitive community.
5.13 Monitoring
Implementation of the Active Transportation Plan is expected to begin in

2006. Implementation of the network infrastructure should be phased on an
annual basis in accordance with available capital funding, and as authorized
by Regional Council.
Collecting data to monitor the different and changing aspects of user

behaviour will assist in evaluating the effectiveness, performance and overall
contribution of various activities to achieve the stated vision, goals and
objectives of the AT Plan.
This data collection should begin in 2007 and build upon previous cycling
initiatives undertaken by HRM and partners. On-going public consultation
should also continue following the adoption of the AT Plan and as the spine

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and community network is constructed in the upcoming years. HRM should

also consider conducting similar surveys to monitor AT use and the public’s
attitude (resident and visitor) towards the network as it is implemented. Over
time, the monitoring system should identify changes in route preference to
assist in determining where to implement changes to “hard and soft”
infrastructure.
The results of this assessment can be used to determine the success of

implementing various types of facilities and adjusting priorities. Caution
may be needed in relying on an immediate response to a given improvement.
An extended timeframe should be established to ensure that AT awareness
initiatives are in place to assist in changing travel patterns and habits.
Assessing the impact and costs of the AT network and programs should be
based on information such as:
• Origin / destination counts;
• Tourist attitudinal surveys;
• Screenline counts on a finer scale that are appropriate to wheeling travel

patterns; and
• Intersection counts to coincide with routes on which improvements are

proposed, and also on parallel routes.
This information should be collected as an internal function of HRM at least

every five years and during the late spring to mid fall season. The proposed
Active Transportation Advisory Committee should have a role in the
collection and review of the data.
Data collected through monitoring programs along with information

collected through on-going public consultation exercises, such as user
surveys and public attitude surveys conducted every five years, will inform
and thus assist in the preparation of the list of annual priorities. In this
context, it is recommended that:
21. HRM and partners should monitor the implementation and effectiveness
of the Active Transportation Plan through measurements of liability
exposure, priority achievements, counting programs, surveys and target
modal splits.
22. HRM (including Metro Transit) continue collecting data on AT modes.
23. Designated HRM staff, with assistance from the proposed Active
Transportation Advisory Committee, conduct AT User Surveys every

5-17
two years and a statistically valid Public and Visitor Attitude Survey at
least every five years.

5-18
Appendix A – HRM Reports and Literature Review:

Benefits of Active Transportation
HRM Reports
The following reports were reviewed:
1) HRTAT Active Transportation Workshop Commentaries,

November, 2004
a. Musquodoboit Trails
b. St Margaret’s Bay Area Rails to Trails
c. Friends of First Lake
d. Halifax North West Trails Association
e. Beechville, Lakeside, Timberlea Rails or Trails Association
f. Cole Harbor Parks and Trails Association
g. Sackville River Trail
h. Chezzetcook – Musquodoboit Trail
i. Second Lake Regional Park Association
j. Lawrencetown’s Atlantic View Trail Association
k. Portland Estates Residents Association (Trails and Parks Committee)
l. Bay of Islands
2) Regional Trails Plan Review and Workshop Report - Halifax

Regional Trails Advisory Team (HRTAT) – January 27, 2004
Prepared by Griffiths Muecke Ass. and Gordon Ratcliffe Landscape
Architects.
3) Regional Trails Project - Halifax Regional Development Agency - June

30, 1997
Prepared by Gordon Ratcliffe Landscape Architects, Griffiths Muecke
Ass. and Waugh Ass. Ltd.
4) Chebucto Peninsula Trails Study – Chebucto Peninsula Trails Alliance

– January 31, 2001
Prepared by Griffiths Muecke Ass, Gordon Ratcliffe Landscape
Architects and Second Nature Ecological Planning Services.
5) Metro Transit Strategy – Halifax Regional Municipality (Transit

Services) – June 2002.
6) Halifax Parkland Strategy, Concept Plan Final Report, Volume 2,

Analysis – Objectives and Policies – City of Halifax – October 10, 1995.
7) Regional Land Use By-Law (draft) – Halifax Regional Municipality –

April 26, 2005 and November 2005.

8) Regional Municipal Planning Strategy (working draft for public

consultation) – Halifax Regional Municipality – April 26, 2005 to
November 30, 2005.
9) Regional Municipal Planning Strategy (Working Draft #2) – Halifax

Regional Municipality – November 30, 2005.
10) Blueprint for a Bicycle Friendly HRM – Final Report – Halifax

Regional Municipality – December 2002
Prepared by Environment Design and Management Ltd.
11) HRM Municipal Planning Strategies and Land Use By-Laws

Halifax (Peninsula and Mainland) MPS (Unofficial Office
Consolidation) Dec. 2004
• Halifax Peninsula LUB –ed. 166.
• Halifax Mainland LUB – ed. 152.
• Planning District 1&3 (St. Margaret’s Bay) MPS – May 1995.
• Planning District 1&3 (St. Margaret’s Bay) LUB – May 1995.
• Planning District 4 MPS – March 1995.
• Planning District 4 LUB – March 1995.
• Dartmouth MPS – September 1978.
• Dartmouth LUB – September 1978.
• Downtown Dartmouth Secondary Planning Strategy – July 2000.
• Downtown Dartmouth LUB – July 2000.
• Eastern Passage/Cow Bay MPS – October 1992.
• Eastern Passage/Cow Bay LUB – October 1992.
• Planning District 5 (Chebucto Peninsula) MPS – February 1995.
• Planning District 5 (Chebucto Peninsula) LUB – February 1995.
• Timberlea/Lakeside/Beechville MPS – November 1992.
• Timberlea/Lakeside/Beechville LUB – April 2004.
• Planning Districts 8&9 MPS – March 1989.
• Planning Districts 8&9 LUB – March 1989.
• Musquodoboit Valley – Dutch Settlement MPS – May 1996.
• Musquodoboit Valley – Dutch Settlement LUB – May 1996.
• North Preston, Lake Major, Lake Loon, Cherrybrook and East Preston
MPS – March 1993.
• North Preston, Lake Major, Lake Loon, Cherrybrook and East Preston
LUB – March 1993.
• Eastern Shore (West) MPS – March 1996.
• Eastern Shore (West) LUB – March 1996.
• Eastern Shore (East) MPS – March 1996.
• Eastern Shore (East) LUB – March 1996.
• Cole Harbour/Westphal MPS – March 1993.
• Cole Harbour/Westphal LUB – March 1993.
• Lawrencetown MPS – December 1990.
12) Halifax Regional Development Agency 2005 Annual Report.

13) Halifax Regional Trails System – Halifax Regional Trails Advisory

Team.
14) McIntosh Run Trail Draft Report – McIntosh Run Trail Association –
June, 2002
Prepared by: Gordon Ratcliffe Landscape Architects and Second Nature
Ecological Planning Services.
15) Nova Scotia Abandoned Rail Lines Audit – Recreational Facility

Association, NS Trails Federation, NS Sport and Recreation
Commission, 1998
Prepared by Kermit deGooyer.
16) Hoof Prints Into History – NS Trails Federation and NS Equestrian

Federation
Prepared by Linda M Conrad.
17) Dartmouth Waterfront Greenway Trail Design and Construction

Plan (Proposal) – Waterfront Development Corporation – May 2002
Prepared by O’Halloran Campbell Consultants Limited and Gordon
Ratcliffe Landscape Architects.
18) Identifying the Ecotourism Potential of Abandoned and Deserted

Corridors in Nova Scotia (Case Study of the Lawrencetown –
Musquodoboit Area) – Canada-Nova Scotia Co-operation Agreement
on Sustainable Economic Development (funded by) – July 1994
Prepared by Denise Jeffrey.
19) Can a Method for Assessing the Impacts of Ecotourism on Rural

Character be Developed? – Environmental Planning Paper – April,
1995
Prepared by Denise Jeffrey.
20) Final Report of the Voluntary Planning Off-Highway Vehicle Task

Force – Voluntary Planning Board (NS) – November 2004.
21) Dartmouth Harbourfront Trail Implementation Strategy –

Dartmouth Harbourfront Trails Association – December 2004
Prepared by Ekistics Planning and Design.

Literature Review
Within the Active Transportation community, there is a consensus opinion

that the current transportation system is not sustainable. This conclusion
acknowledges that the benefits of physical mobility achieved by the
automobile have come at considerable environmental, social and economic
costs. The challenge is to find ways of meeting our transportation needs that
are environmentally sound, socially equitable and economically viable.
Infrastructure that supports Active Transportation can be effective in

reducing the dependence on the automobile. Findings in a Toronto study are
similar to those conducted in Edmonton. More than one-half of the
households in Central Toronto do not own a car, with only 9% of households
owning two or more cars. In comparison, the suburban community of
Pickering has only 2% of households not owning cars, and 74% own two or
more cars. In Central Toronto from 6am to 9am, 28% of trips are by foot or
bicycle, 38% by public transit, and only 27% by automobile. In the Greater
Toronto Area suburban community of Markham, 63% were by car, 10% by
transit and 9% by walking and cycling.
Cycling and walking have evolved to become practical, cost effective,

environmentally sensitive and healthy modes of transportation for both
recreational and utilitarian purposes across North America. In most
countries of the industrial world, Active Transportation is an integral and
necessary component of a balanced transportation system and acts as an
alternative to the automobile.
Several cities have experienced dramatic increases in their level of cycling

following a significant investment in AT infrastructure and supporting
facilities. Copenhagen, in Denmark, experienced a cycling increase of 50%
in five years, Eugene, Oregon experienced an increase of 75% and Toronto
experienced an increase of 270% 22. The Adanac Bikeway in Vancouver was
completed in 1993 and bicycle volumes increased 225% during the period
from 1992 to 1996.
In Ontario, recreational cycling is recognized as one of the top three

recreational pursuits, having a 20% participation rate and estimated annual
growth rate of 2.3 % 23. Regional Municipalities in Ontario, including
Niagara and Waterloo, as well as urban municipalities such as Toronto,
Ottawa, Brampton, Markham, London, Milton and Windsor are developing
networks to encourage cycling and walking, and to lower the reliance on the
automobile. In the City of Toronto, approximately 20% of the population
cycle for utilitarian purposes, such as getting to work, school and shopping
22
New York City, New York City Bicycle Master Plan, 1997, pg. 6.
(http://www.ci.nyc.ny.us/html/dcp/pdf/bike/cyclnyc.pdf)
23
Ministry of Citizenship, Culture and Recreation, 1998.

while 44 % of the population cycle for recreational purposes to follow leisure

and fitness pursuits. 24
According to the International Inline Skating Association, the number of

skaters in the United States has grown from 20,000 in 1984 to more than
10,000,000 by 2001. In a 1995 user count on the East River Park Esplanade
on the Hudson River in New York City, inline skaters outnumbered cyclist
by a 2:1 ratio. 25
Changes are occurring in recreation as a result of demography 26. A larger

proportion of the population is aging and looking for different types of
recreational opportunities than were typical in the past. The following
general trends have been observed by Go For Green, all of which have
implications for Active Transportation, particularly trail development:
• There is a renewed interest in spending “quality time” with family and

friends, while pursuing high quality recreational experiences;
• Staying healthy through active recreational pursuits is viewed as

important;
• There is a strong interest in tourism and recreational activities that

respect the natural and cultural environments, and also offer
educational opportunities; and
• There is a pervasive interest in getaway travel where the goal is to

obtain a high quality recreational experience at a reasonable cost.
Health, Recreation and Fitness Benefits and Costs
The professional and academic literature contains significant data on

community health and physical activity that confirms the need for an Active
Transportation Plan in the Halifax Region.
A recognized benchmark is the Canadian Health Survey (CHC). Since

1978/79, this survey has measured the height and weight of a nationally
representative sample of children and adults from all regions of Canada.
Based upon the 2003 survey, 25% of the population in the Halifax Health
Region is physically active and 48% is inactive. The respective Nova Scotia-
wide values are 24% and 50%. For the population 12 years and older, the
inactive population in the local health region is 43% male and 52% female.
This compares to Canada-wide values of 44% and 50% and Nova Scotia
values of 45% and 54% respectively.
24
Decima Research Inc., 1999.
25
New York City, New York City Bicycle Master Plan, 1997, pg. 5
(http://www.ci.nyc.ny.us/html/dcp/pdf/bike/cyclnyc.pdf)
26
Boom, Bust & Echo: Profiting from the Demographic Shift in the 21st Century. David Foot (with D. Stoffman)
Toronto: Stoddart 2001.

The 2004 Canadian Community Health Survey (CCHS) collected

information on over 35,000 respondents to measure the prevalence of
overweight and obesity.
The 2004 CCHS revealed that obesity rates for both children and adults have
increased significantly over the past 25-years 27 . Overweight and obesity
rates are calculated by the body mass index (BMI) which is determined by
dividing weight in kilograms by height in metres squared. For adults, a BMI
of 25 or more indicates an overweight condition and an increased risk of
developing health problems. A BMI of 30 or more indicates obesity and a
high to extremely high risk of developing health problems.
In 1978/79, only 3% of children aged 2 to 17 were obese. By 2004, the

CCHS determined that 8% of this age group (estimated at 500,000 children)
was obese. The proportion of overweight/obese children between two and
five years has not changed from 1978 to 2004. In contrast, the
overweight/obesity rate for youth (12 to 17 years) more than doubled from
14% to 29% while this group’s obesity rate tripled from 3% to 9%. Rates of
overweight and obesity among young people (2 to 17 years) vary across
Canada with the combined overweight/obesity rate significantly above the
national average in Newfoundland and Labrador, Nova Scotia, New
Brunswick and Manitoba.
The increase in overweight/obesity rates in adolescents is a major concern to

health care professionals as overweight and obese conditions in adolescence
often continue into adulthood.
For the adult population, the increase in obesity is higher. In 1978/79, the
adult obesity rate (age-adjusted) was 14% and this level increased to 23%
(estimated at 5.5 million adults) by 2004. This adult rate compares to nearly
30% in the United States. Adult obesity is up in almost every age group
(except those between 65 and 74). The most significant increase in obesity
occurred in people younger than 35 (9% to 21%) and those 75 and older
(11% to 24%). The lowest obesity rate (11%) occurs in the 18 to 24 age
group and peaks (30%) in the 45 to 64 age group.
While men and women are equally likely to be obese, a higher percentage of
women were in the most severe obesity class (three classes of severity are
used by the World Health Organization and Health Canada) where the risk of
developing health problems is extremely high. Canada-wide, adult obesity
rates are generally consistent from province to province. However, the rate
for men was significantly above the national level in Newfoundland and
Labrador and Manitoba. The rate for women exceeded the national level in
Newfoundland and Labrador, Nova Scotia and Saskatchewan.
27
Adult Obesity in Canada: Measured Height and Weight and Overweight Canadian Children and Youth, Statistics
Canada online catalogue 82-620-MWE2005001, 2005.

Lifestyle plays an important role in obesity. Physical activity, diet and

income are influencing factors. The CCHS determined that people who
spent their leisure time in sedentary pursuits were more likely than those who
were physically active to be obese. As an example, 20% of active men are
obese compared to 27% of sedentary men. For women, obesity rates are
high for those who are sedentary and moderately active. Socio-economic
factors (income, marital status and education) also influence the chances of
obesity. Men in high income households and women from middle income
households had a higher chance of being obese.
The implications of the cost of physical inactivity have been measured in

Nova Scotia and the Halifax Region 28 . This research concludes that 62% of
Nova Scotians are too inactive to reap the health benefits of regular physical
activity. Other findings are:
• Physical activity provides proven health benefits. These benefits include

fostering the development of healthy muscles, bones and joints; increasing
strength and endurance; improving behavioral development in children and
adolescents; and maintaining functions and preserving independence in
older adults.
• Physical activity also protects against heart disease, stroke, hypertension,

type 2 diabetes, colon and breast cancer, osteoporosis, depression, anxiety
and stress.
• Epidemiological studies estimate that 36% of heart disease, 27% of

osteoporosis, 20% of stroke, hypertension, type 2 diabetes and colon
cancer, and 11% of breast cancer are attributed to physical inactivity.
• Physical inactivity costs the Nova Scotia health care system (estimate)
$66.5 million per year with the impact on all direct health costs being $107
million with the respective costs to the Halifax Region being $44.7 million
and $68 million respectively.
• Physical inactivity costs the Nova Scotia economy an additional $247

million per year in indirect productivity losses due to premature death and
disability. The direct and indirect cost of physically inactivity is estimated
at $354 million annually.
• If all Nova Scotians were physically active, the Province would gain an
additional 2,200 productive years of life each year. The Halifax Region
would gain an additional 850 productive years.
28
Colman, Ronald, The Cost of Physical Inactivity in Nova Scotia, 2002, prepared for Recreation Nova Scotia and Sport
Nova Scotia. Available at www.gpiatlantic.org.
Colman, Ronald and Walker, Sally, The Cost of Physical Inactivity in Halifax Regional Municipality, 2004, prepared for
The Heart and Stroke Foundation of Nova Scotia.

• More than 700 Nova Scotians die prematurely each year due to physical
inactivity or 9% of all premature deaths. For the Halifax Region, the
number is 200.
The findings of this evidence-based research provide a context for the Active
Transportation Plan. This research revels that the AT Plan should strive to
meet the active lifestyle needs or all age groups, and both the male and
female population.
Transportation Benefits
Active Transportation modes are efficient means of travel. For example a

road can carry up to 12 times as many people per hour by bicycle as by
automobile, and up to 20 times the volume for pedestrians 29 . Only bus ways
and surface rapid rail move more people more rapidly.
For distances up to five kilometres, bicycling is recognized as the fastest of

all modes from door to door. 30 For reasonably short trips, walking can also
be extremely fast and convenient. When the proper infrastructure is
available, neither require very much “start up” or “transition” time, such as
starting a vehicle, finding a parking space, and completing the trip from
parking to destination.
Canadians make an average of more than 2,000 car trips per year for
distances of three kilometres or less. Recent surveys indicate that 66 % of
Canadians would like to cycle more than they presently do. Sixty-five
percent of Canadian adults somewhat or strongly agree that if there were “a
dedicated bike lane which would take them to their workplace in less than 30
minutes at a comfortable pace”, they would definitely use it. 31 Thirty
percent indicated that they would be willing to commute by walking to their
workplace. These responses clearly demonstrate considerate potential for
increasing the number of trips by Active Transportation modes.
The main transportation benefits to increased use of Active Transportation

are congestion reduction, roadway costs, road safety, and parking space
reduction.
Congestion Reduction
On congested urban roads, each additional motor vehicle trip increases the
delay experienced by other vehicles on the road. There is an economic cost
29 Technology Review, Massachusetts Institute of Technology, May/June 1990.

30 Bicycle Policy Review, Ontario Ministry of Transportation, 1992.
31 National Survey on Active Transportation, Go for Green and the Canadian Fitness and Lifestyle Research Institute,
2004.

when people and goods are delayed in traffic. Traffic congestion increases
travel time, vehicle-operating costs, stress and air pollution. 32
In contrast, walking causes little or no congestion. Cycling only causes

congestion on higher speed roads with narrow lanes that do not allow motor
traffic to easily pass the cyclist. Since such roads do not provide a safe or
pleasant cycling experience, cyclists tend to avoid such roads if alternative
routes are available. In general, cycling causes little congestion, thus it can
be assumed that switching a trip from a motor vehicle to a bicycle will
directly reduce congestion. No congestion is assumed in rural areas. 33
Roadway Costs
Roadway costs include the public expenditures of adding new road capacity,
maintaining roads and safety enhancements to roads. This does not include
costs that are paid for by road users through tolls or gas taxes. Most local
roads are paid for through property taxes and development charges and are
not paid for directly by the users of the road. Maintenance costs vary with
the size, weight and speed of the vehicle. Studded tires also increase
maintenance costs.
A shift to Active Transportation will contribute to lower roadway costs.

Bicycles are very light vehicles that take up little space thus their roadway
costs are negligible. Sidewalks used by pedestrians are needed for basic
mobility. Sidewalks are also used by others, including drivers when they
access their vehicles. Therefore, it is the position of organizations like Go
For Green that including the full cost of sidewalks as a cost of walking is not
appropriate. 34
A relatively small portion of a transportation budget can facilitate high levels

of bicycle use. In the Netherlands, only 6% of the money spent on road
infrastructure is allocated to bicycle facilities, yet the bicycle has a 27%
share of all journeys and a 9% share of all kilometres travelled. 35 In
Freiburg, Germany, just 1% of the transportation budget is devoted to
cycling yet the modal share for cycling is 19%. 36
32 D. Schrank and T. Lomax, Mobility Study-1982 to 1996, (http://mobility.tamu.edu/ums/), Texas Transportation

Institute, 1998.
33 T. Litman, Quantifying the Benefits of Non-Motorized Travel for Achieving TDM Objectives,
(http://www.vtpi.org/nmt-tdm.pdf), Victoria Transport Policy Institute, 1999, p 2.
34 T. Litman, Quantifying the Benefits of Non-Motorized Travel, p 2.
35 Min. Verkeer en Waterstaat, Den Haag, Feiten over het fietsen in Nederland (Facts about cycling in the Netherlands),
1993.
36 T. Bracher, IVU Berlijn, A least cost approach to transportation planning, paper for World
Conference on Transport Research WCTRs, Antwerp, 1998.

Road Safety
Cyclists and pedestrians are less likely to injure other road users in collisions.
And, although the risk to individuals switching to Active Transportation
likely will increase somewhat, this risk can be decreased through education
and the construction of safer facilities.
There is strong evidence to suggest that an increase in the number of cyclists

on a road decreases the risk of cycling. If the number of cyclists doubles, the
number of fatalities increases only by 25%. This is a reduction in the risk of
cycling by 37%. 37 As evidence from Germany, the Netherlands, and the US
shows, increases in the levels of cycling and walking results in injury and
fatality rates per trip and per kilometre travelled falling dramatically. 38
Fatality rates per trip and per kilometre are much lower for countries and
cities with high bicycling and walking shares of total travel, and fatality rates
fall for any given country or city as cycling and walking levels rise. 39
In summary, a switch to cycling and walking may increase the risk to each
particular individual who uses that mode, but the risk to all other cyclists and
road users will decrease.
Parking Space Reduction
Parking, particularly in urban areas, is a significant challenge and cost

associated with automobile use. The cost includes the land, construction and
operating expenses of parking facilities. Free parking is provided to an
estimated 80% of commuters and an even larger portion of shoppers. 40 This
represents a major subsidy of driving that results in higher taxes and retail
prices and lower wages and benefits. 41 The cost of parking in an urban
facility ranges from $60 to $200 per month, or about $3.00 to $10.00 per day
in Vancouver. 42 In Toronto, parking averages $200 per month or $10 per
day. 43
Parking costs associated with bicycles, walkers, and inline skating are much
less. As many as 20 bicycles can be stored in the space required for one
automobile, and facilities can often easily be provided in underused sidewalk
37 L. Leden, P. Gårder, U. Pulkkinen, “An expert judgement model applied to estimating the safety effect of a bicycle
facility”. Accident Analysis and Prevention, 2000, 32:589-99.
38 Pucher and Dijkstra, “Promoting Safe Walking and Cycling to Improve Public Health: Lessons from the Netherlands
and Germany,” American Journal of Public Health, September 2003, Vol. 93, No. 9, pp. 1509-1516.
39 Jacobsen, “Safety in Numbers,” Injury Prevention, 2003, 9: 205-209.
40 Donald Shoup, “Cashing Out Free Parking,” Journal of American Planning Association, June 1994.
41 T. Litman, Transportation Cost and Benefit Analysis – Parking, (http://www.vtpi.org/tca/tca0504.pdf), 2003.
42 Better Environmentally Sound Transportation, Parking Management: Making Your Trip Reduction Program More
Effective, (http://www.carpool.ca/pdf/Parking_Management.pdf), 2002, p3.
43 Toronto Transit Commission, Save $3,900 a year by taking the TTC instead of your car!
(http://www.toronto.ca/ttc/ttc_vs_car/ttc_vs_car.htm), 2004.

areas, often significantly closer to businesses and workplaces. No parking is

required for pedestrians and inline skaters.
Environmental Benefits
A major future challenge for all Canadian municipalities will be the

management of airborne pollutants. Currently, road transport accounts for
roughly 70% of transportation greenhouse gas (GHG) emissions, with 45%
from cars and light-duty trucks. Yet on-road vehicular use of gasoline, the
largest source of transportation emissions, is expected to increase by 44%
between 1990 and 2020. 44
The average car pumps more than twice its weight in carbon dioxide into the
atmosphere each year and short distance motor vehicle trips are the least
fuel-efficient and generate the most pollution per kilometer. 45 These trips
have the greatest potential of being replaced by Active Transportation
modes.
In Canada, the environmental cost of motor vehicle use is estimated at $14 to

36 billion per year. 46 These costs include the damage to the environment and
to people’s health caused by air pollution, noise, water quality and land use.
Air Pollution Reduction
Motor vehicles produce an array of pollutants that have a serious impact on

human health and the environment. These include:
• Nitrogen oxides (NOx)

• Carbon monoxide (CO)
• Sulphur dioxide (SO2)
• Particulate matter (PM). 47
For each commuter who switches from personal automobile travel to active
modes of transportation, a reduction of 0.64 tonnes per active commuter is
achieved annually. This benefit is equivalent to nearly two-thirds of the goal
set under the ‘One tonne challenge’.
Walking and bicycling do not produce air pollution. Per kilometre air
pollution reductions are large because bicycling usually replaces short, cold
start trips for which internal combustion engines have high emission rates, so
44 Transport Canada, 1997 Sustainable Development Strategy,

(http://www.tc.gc.ca/programs/Environment/SD/strategy97/challenges7.htm), 1997.
45 The Auto Smart Guide, Natural Resources Canada, 1995.
46 Transport Canada, 1997 Sustainable Development Strategy,
(http://www.tc.gc.ca/programs/Environment/SD/strategy97/challenges7.htm), 1997.
47 G. Simmons, Canadian regulation of air pollution from motor vehicles,
(http://www.sierralegal.org/reports/air_report.pdf), Greenpeace and the Sierra Legal Defence Fund, January 2002, p 9.

each 1% of automobile travel replaced by an Active Transportation mode,

decreases motor vehicle air pollution emissions by 2% to 4%. 48
For each motorised trip that is replaced by Active Transportation, 2.6 grams
of hydrocarbon, 20 grams of carbon dioxide, and 1.6 grams of nitrogen oxide
will not be released per passenger-mile. 49
Noise Reduction
Noise pollution is unwanted sounds and vibrations. Motor vehicles cause

various types of noise, including engine acceleration, tire/road contact,
braking, horns and vehicle theft alarms. 50 Vehicle noises impose disturbance
and discomfort, and in some situations even a health risk to certain
populations.
The economic costs of noise vary, but are greatest on residential streets
where a change in traffic volumes of just a few hundred vehicles per day can
significantly affect property values. 51 Low-level but chronic noise of
moderate traffic can stress children and raise their blood pressure, heart rates
and levels of stress hormones. 52 Exposure to traffic noise has been linked to
reduced reading levels in children, possibly due to reduced auditory
discrimination. 53
Active Transportation, especially increased cycling, tends to reduce both the

volume and the speed of vehicle traffic on noise-sensitive residential streets.
Water Quality
Motor vehicles, and their required infrastructure, are a major source of both
water pollution and hydrologic disruption. 54 An estimated 30% to 40% of
the lubricating oils used in automobiles in the United States are lost in drips
and leaks or are disposed of improperly onto the ground or into sewers. 55
As many as 46% of US vehicles leak hazardous fluids, including crankcase

oil, transmission, hydraulic, and brake fluid, and antifreeze as indicated by
48 Charles Komanoff and Cora Roelofs, The Environmental Benefits of Bicycling and Walking, National
Bicycling and Walking Study Case Study No. 15, U.S. Department of Transportation, January 1993, FHWA-PD-93-015.
49 Bicycle Policy Review, Ontario Minitry of Transportation, 1992.
50 Office of Policy and Planning, Indicators of the Environmental Impacts of Transportation, US Environmental
Protection Agency, Washington DC, (www.itre.ncsu.edu/cte), 1999.
51 Gordon Bagby, “The Effects of Traffic Flow on Residential Property Values,” Journal of the American
Planning Association, January 1980, pp. 88-94.
52 Journal of Acoustical Society of America, 2001.
53 Bronzaft, A. L., Deignan, E., Bat-Chava, Yael, & Nadler, N. B. (2000). Intrusive community noises yield more
complaints. Noise Rehabilitation Quarterly.
54 T. Litman, Transportation Cost and Benefit Analysis – Water Pollution, (http://www.vtpi.org/tca/tca0515.pdf), 1996,
p 5.15-1.
55 Helen Pressley, “Effects of Transportation on Stormwater Runoff and Receiving Water Quality,” internal agency
memo, Washington State Department of Ecology (Olympia), 1991.

oil spots on roads and parking lots, and rainbow sheens of oil in puddles and
roadside drainage ditches. 56 Runoff from roads and parking lots contain high
concentrations of toxic metals, suspended solids, and hydrocarbons
originating principally from motor vehicles. 57
Other motor vehicle related factors impacting water quality include:
• Road de-icing
• Air pollution settlement
• Roadside herbicides used to clear vegetation
• Increased flooding due to an increase on impervious surfaces causing
concentrated runoff
• Road construction near shorelines, lakes, and rivers
• Loss of wetlands due to road construction.
Active Transportation modes of travel will have a much more limited impact,
with only extremely minor toxic fluids being introduced into the water
system from bicycles.
Land Use
Automobile dependent communities require more land for road rights-of-

ways and parking than communities that are not as reliant on the automobile.
The amount of land devoted to roads and parking varies depending on land
use patterns. Pedestrian-oriented cities typically devote less than 10% of
their land to transportation while automobile-oriented cities devote up to
three times as much. 58
Walking and cycling facilities, such as sidewalks and paths, typically use
approximately 10% to 20% of roadway rights-of-ways. However, this space
is often shared with utilities such as telephone poles, signposts and other
equipment as sidewalks exist in part to support automobile travel as
motorists use sidewalks when walking from a parked car to their
destination. 59
Reducing motor vehicle dependence by providing improved Active

Transportation infrastructure can both reduce the amount of land in urban
areas required for roads and parking, and also reduce the land requirements
56 Christopher Von Zwehl, comments at New Jersey Senate Public Safety Committee public hearing on
motor vehicle inspection legislation, Feb. 25, 1991, from Facts and Figures 90, AAMA.
57 R.T. Bannerman, et al, “Sources of Pollutants in Wisconsin Stormwater,” Water Science Tech. Vol. 28; No 3-5; pp.
247-259, 1993; Lennart Folkeson, Highway Runoff Literature Survey, VTI (Sweden), #391, 1994; John Sansalone,
Steven Buchberger and Margarete Koechling, “Correlations Between Heavy Metals and Suspended Solids in Highway
Runoff,” Transportation Research Record 1483, 1995, pp. 112-119.
58 James Hunnicutt, “Parking, Loading, and Terminal Facilities,” in Transportation and TrafficEngineering Handbook,
Institute of Transportation Engineering/Prentice Hall, 1982, p. 651.
59 Evaluating Transportation Land Use Impacts, Victoria Transport Policy Institute, Todd Litman, July 2004.

for the construction of new subdivisions, making the entire system easier to
manage from a transportation perspective.
Economic Benefits
In March 2004, Go for Green, in conjunction with Best Environmentally

Sound Transportation of British Columbia, released a Business Case for
Active Transportation in a report entitled “The Economic Benefits of
Walking and Cycling”. 60 These benefits include, but are not limited to:
• Reduction in road construction, repair and maintenance costs;

• Reduction in costs due to greenhouse gas emissions;
• Reduction in health care costs due to increased physical activity and
reduced respiratory and cardiac disease;
• Reduction in fuel, repair and maintenance costs to users;
• Reduction of costs due to increased road safety;
• Reduction in external costs due to traffic congestion;
• Reduction in parking subsidies;
• Reduction of costs due to air pollution;
• Reduction of costs due to water pollution;
• The positive economic impact of bicycle tourism;
• The positive economic impact of bicycle sales and manufacturing;
• Increased property values along greenways and trails; and
• Increased productivity and a reduction of sick days and injuries in the
workplace.
The economic benefits of Active Transportation are significant, even at

current low levels of use. The current total of these economic benefits
amounts to $3.6 billion per year in Canada. If the modal share of Active
Transportation in the country increased to that of its most active community,
15.2% (Victoria), the benefits would increase to $7.0 billion a year. (Halifax
is currently at 11.2%) 61
The Greater Vancouver Regional District has conducted studies which

concluded that the region could save $2.2 billion on transportation costs
alone if urban growth became more concentrated. This saving is largely a
result of the higher costs of transportation in communities that are heavily
dependent on private cars. 62
A small portion of a community’s transportation budget can be used to

facilitate high levels of Active Transportation use. For example, in the
Netherlands, 6% of the money spent on road infrastructure is used for
60 The Business Case for Active Transportation, Go For Green, Better Environmentally Sound Transportation – BEST,
March 2004.
61 Statistics Canada, 2001 Census: analysis series - Where Canadians work and how they get there,
http://www12.statcan.ca/english/census01/products/analytic/companion/pow/pdf/96F0030XIE2001010.pdf, 2003.
62 Presentation to the Standing Committee on Finance, 2002 Pre Budget Consultations, Go for Green, November 2002.

cycling facilities while the Netherlands has an Active Transportation modal

share of 46% 63 .
Paved shoulders for cyclists and inline skaters can be provided at a cost of
$50,000 to $100,000 per kilometre. A paved pathway can be added for a
typical cost of $250,000 per kilometre. Widening a two lane urban arterial
road to four lanes can typically cost in the range of $1.3 million per
kilometre. 64
Roadway funding requirements include maintenance costs, safety and

enhancement costs plus the addition of roadway capacity through lane
widening or additions. The cost for road construction, reconstruction and
maintenance is usually paid for by road users through gas taxes. Switching
commuters to Active Transportation modes can result in reductions in
roadway costs since non-motorised uses are lightweight and take up little
space and cause little “wear and tear” on a road surface.
Encouraging more people to use Active Transportation can lead to a

reduction in the number of parking spaces required. Bicycle parking
facilities can be provided in existing surface or underground parking lots
with no expansion required, whereas the cost of providing additional parking
spaces for automobiles on a surface parking lot is approximately $3,000 per
stall. Underground parking is even more expensive at $16,000 to $20,000
per stall 65 .
There is also evidence that trails provide economic benefits for adjacent
landowners and local businesses. Tourism surveys indicate that almost 60%
of Nova Scotia’s current visitors seek out recreational walking opportunities
while almost 20% look for wilderness hiking experiences. 66 Trails provide
benefits to the local economy during both construction and operation. A few
examples include:
• Trails in New Brunswick employ around 1,500 people for an average

of six months per year;
• 70 % of Bruce Trail users (Ontario) cite the trail as the main reason for
visiting the area, and they spend an average of about $20.00 per user
per visit within a 10 kilometre corridor on either side of the trail;
• Annual expenditures linked to La Route Verte rose to $95.4 million in
63 Feiten over het fietsen in Nederland (Facts about cycling in the Netherlands), Min. Verkeer en Waterstaat, Den Haag,
1993. J.Pucher and C. Lefèvre, The Urban Transport Crisis, MacMillan (London), 1996, pp 16-17.
64 Public Benefits in the Victoria Region, 1996.
65 The Business Case for Active Transportation, The Economic Benefits of Walking and Cycling; Section 4.1.5; Go for
Green, March 2004.
66 A Survey of Nova Scotia Hiking Trail Users, Gardner Pinfold Consulting Economists Limited, January 1999.

2000, representing 2,000 jobs and $15.1 million and $11.9 million for
the governments of Quebec and Canada, respectively;
• In 2002, Quebec hosted 190,000 bicycle tourists who spent an average

of $112 per day and an average of 6.5 nights compared to $52 per day
and an average of 3.1 nights spent by other tourists;
• In Ontario, the Eastern Ontario Trails Alliance estimate that at the end
of a 10 year build-out period, 320 kilometres of their system,
constructed at a cost of $5.4 million, will generate approximately $36
million in annual economic benefits in the communities through which
it passes, and create/sustain over 1,100 jobs (includes motorised use);
and
• Aggregate expenditures associated with the use of the trails in Nova

Scotia was estimated at about $90.5 million in 1998, with non-
residents accounting for the bulk of the spending, about $86 million
out of the $90.5 million total. 67
A 1997 survey of Canadian tourists active in the outdoors showed that 30%
of Ontario tourists cycled on at least one occasion while on vacation. The
Ontario Ministry of Transportation reported that touring cyclists spend an
average of $130 per day in Ontario, and the bicycle retail and tourist industry
contributes a minimum of $150 million a year to the Ontario economy.
Bed and breakfast operators between Ottawa and Kingston report that a
majority of their business is from touring cyclists. Cyclists in Vermont
spend an average of $180 U.S. per day, the same amount expected of
someone travelling by car.
In summary, experiences from other jurisdictions as well as data collected at

the provincial and federal levels in Canada confirm the positive benefits of
supporting Active Transportation and trail development. Active
Transportation can provide a number of transportation, economic,
environmental and social benefits to the Halifax Region. According to the
aforementioned Go for Green study, “The current economic benefits are
enough to justify increased government expenditures on Active
Transportation in Canada. The projected benefits of doubling the mode share
of Active Transportation make the case even more compelling.”
67 Ibid, pg 44.

Appendix B - Regional Municipal Planning

Strategy: Summary Of Settlement Designations
Designation Policy Area (Geographic Comments
Statement(s) or Functional)
Overall Policies T-1 to Transportation corridor, Projects (over 25-years) are shown on Map
Integrated Land T-5 land use or facility, 7, Future Transit and Transportation Map.
Use and function or operational The Transportation Master Plan (Policy T-
Transportation specific. 5) will include the Active Transportation
Framework Plan, a Transportation Demand
Management (TDM) Program and a
Regional Parking Strategy.
Policy T-1 (Transportation Corridor) states

that HRM shall designate transportation
corridors as areas for future road or
transportation infrastructure development.
Policy T-4 (Bicycle Parking) states that the

Regional Land Use By-Law will be used to
establish provisions for the quantity, type
and location of bicycle parking spaces
within the Urban Settlement Designation.
Policy T-5 (Implementation) states that

HRM shall establish a Strategic Joint
Regional Transportation Planning
Committee.
Policy T-5 states that HRM shall prepare a

Master Transportation Plan incorporating
the following functional plans: Road and
Road Network, Public Transit, Active
Transportation, Transportation Demand
Management and Regional Parking
Strategy.
Regional Centre S-1 – Urban Peninsula Halifax and Shall act as a focal point for all higher-
Settlement Downtown Dartmouth order transit. Frequent transit services will
Designation: (Within Hwy. 111) be provided to all residents, campuses and
Regional Centre “Regional Centre” business districts.
Note: Economic Policy EC – 6 states that a

Halifax Harbour Designation will be
established (including the first major
parallel road) that extends from Hartlen
Point in Eastern Passage to Chebucto Head
including Northwest Arm and Bedford
Basin and extends inland generally to the
first major roadway paralleling the
harbour. The designation shall support a
range of activities including commercial,
recreational, residential, transportation and

industrial, among others and a Secondary

Planning Strategy (EC-7) will be prepared
for marine dependent uses and other uses
that include recreation. Policy EC-8 states
that HRM shall facilitate the planning and
development of new parks and trail
systems in appropriate locations along the
shore of Halifax Harbour, including links
to inland park/trail systems. Policy EC-
8(c) supports the integration of trail
systems with transit corridors (existing and
planned) while Policy EC-8(c) states that
HRM shall endeavour to design and
develop alternative routes around marine
industrial operations.
Policy EC-20 states that HRM shall

prepare a Halifax Harbour Functional Plan
regarding area-specific land uses and may
use the results to amend this plan for the
Halifax Harbour Designation described in
EC-7. The Halifax Harbour Functional
Plan would include: assessment of the
Shannon Park property including a ferry
terminal and harbourfront park and trail
development, study of the long-term
feasibility of residential and park/trail
development from the Bedford Waterfront
to Birch Cove, and a detailed Secondary
Planning Process for the Northwest Arm
that includes opportunities and issues for
park and trail development.
Urban District S-1– Urban All lands in and around Higher order transit shall be provided to
Centres Settlement MicMac Mall and West and from these centres, and throughout the
Designation: End Regional Shopping Regional Centre. Parking structures should
Urban District Centre be encouraged for park-and-ride and
Centres commercial uses.
Suburban S-1 – Urban Lands in and around Higher order transit will be provided from
District Centres Settlement Sunnyside Mall, these centres to other centres and the
Designation: Sackville, Spryfield, Regional Centre. Large surface and park-
Suburban Bedford West and and-ride facilities or parking structures
District Centres Russell Lake shall be encouraged in these centres as well
as street or side yard parking for pedestrian
retail.
Urban Local S-1 – Urban Lands in and around the All day transit service will be provided to
Centres Settlement City of Lakes Business other centres and the Regional Centre.
Designation: Park, Penhorn Mall, Medium sized surface park-and-ride
Urban Local Morris Lake, Shannon parking facilities or parking structures will
Centres Park and Woodside be encouraged as well as street or side yard
parking for commercial uses.
Suburban Local S-1– Urban Lands in and around All day transit service will be provided
Centres Settlement Bedford Mill Cove, from these centres to other centres and the
Designation: Bedford South, Regional Centre. Surface parking-and-ride
Suburban Local Kearney Lake North, facilities or parking structures will be
Centres Birch Cove, Clayton encouraged as well as street or side yard

Park West, Cole parking for pedestrian oriented retail.

Harbour, Burnside East,
Eastern Passage,
Herring Cove, Lower
Sackville, Middle
Sackville, Morris Lake,
Tacoma Drive and
Westphal
Secondary S 11 – Future All designated centres Secondary Planning Strategies will be
Planning Detailed completed that will define specific
Strategies For Planning boundaries, population targets and detailed
All Urban design policies related to layout, permitted
Settlement uses, development densities and
Designations implementation mechanisms.
Note: Economic Policy EC-13 states that

residential development may be considered
for certain lands east and north of Burnside
Business Park by way of the multi-unit
residential development agreement policies
of the Dartmouth Secondary Planning
Strategy and Policy IM-15.
Note: Through the Business Parks

Development Functional Plan, HRM will
develop a list of infrastructure projects that
may include the Sackville Expressway and
a pedestrian based transportation plan that
fulfills the objectives of the Active
Transportation Plan.
Urban Reserve S-3 – Urban Lands abutting Policies seek to ensure an adequate supply
Designation Reserve (outside) the Urban of serviced land beyond 25-years. Seven
Designation Settlement Designation areas have been identified: interior lands
which could be bounded by Hwy. 7, Ross Road, Hwy. 207
serviced in the future and Broom Road (Cole
Harbour/Westphal), Anderson Lake,
Governor Lake North (Timberlea), Kidston
Lake, lands west of Sandy Lake/Bedford,
Ragged Lake (Halifax) and Purcell’s Cove
area back lands.
Rural Commuter S-6 – Rural Lands within Fall Focus is on low density residential
Centres Commuter River, Lake Echo, development with communal septic
Designation: Porters Lake and Upper systems and possibly central water
Rural Commuter Tantallon services. Park-and-ride bus service and
Centres express bus service at transit terminals
shall be provided for commutes to the
Regional Centre. Where possible, shared
parking shall be encouraged in close
proximity to shopping or recreation centres
and transit terminals.
Note: Policy S-10 shall establish a

Comprehensive Development District
(CDD) Zone under the Regional Land Use
By-Law in Enfield, Hubbards,

Musquodobit Harbour, Fall River, Lake

Echo, Porters Lake and Tantallon to
protect lands as a focal point for transit
oriented design development.
Rural Commuter S-6 – Rural Lands within Enfield Express bus service shall be provided from
District Centres Commuter and Musquodoboit these centres to other centres and the
Designation: Harbour Regional Centre. Where possible, shared
Rural Commuter parking facilities shall be encouraged for
District Centres park-and-ride and commercial uses.
Policy S-10 also applies

Rural Commuter S-6 – Rural Lands within the These centres shall be encouraged to
Local Centres Commuter communities of Hatchet develop as small mixed use service centres.
Designation: Lake, Hubbards, Transit service shall be provided at peak
Rural Commuter Hubley, Sambro, Indian hours from these centres to other centres
Local Centres Harbour, Waverley, and the Regional Centre. Where possible,
Whites Lake, Jeddore, shared parking shall be provided for park-
East Preston, Cherry and-ride and commercial uses.
Brook, Lake Loon and
North Preston Note: North Preston will continue to be
serviced with central water and sewer
systems. HRM shall consider servicing
Hubbards with central water and sewer
systems.
Note: Policy S-10 also applies to

Hubbards.
Implementation IM-14 Urban Settlement Upon entering into a Development
and Project Designation, Agreement the following may be
Scheduling Rural Commuter considered:
Designation and 1. Commercial/Residential uses as
Agricultural permitted under the Spring Garden
Designation Road Commercial Area Plan pursuant
to policy EC-2.
2. Residential Lands pursuant to Policy
EC-13
3. Development within Comprehensive
Development District Zones.
4. Residential Open Space development
pursuant to Policy S-14 and S-15.

Appendix C – Summary of Province of Nova Scotia

Statutes

Provincial Document Applicable Policy Statement
Municipal Government Act (MGA), Where a municipal planning strategy identifies property required for the
Section VIII, 224, (1) purposes of widening, altering or diverting an existing street or pathway
or for the purposes of a new street or pathway, council may, in a land-
use by-law, identify the transportation reserve and:
(a) set out its intention to acquire property for the purposes of widening,
altering or diverting an existing street or pathway, or for the purposes of
a new street or pathway;
(b) set out the proposed right-of-way intended to be acquired;
(c) set out building setbacks for the widened, altered, diverted or new
street or pathway;
(d) prohibit development in the proposed right-of-way or between the
proposed right-of-way and the building setbacks.
MGA, Section IX, 274 (1) A municipal planning strategy may authorize the inclusion of provisions
for infrastructure charges in a subdivision by-law. (2) Infrastructure
charges for
(e) upgrading intersections, new traffic signs and signals and new
transit bus bays, may be imposed in a subdivision by-law to recover all,
or part, of the capital costs incurred, or anticipated to be incurred, by a
municipality by reason of the subdivision and future development of
land and infrastructure charges for land, planning, studies, engineering,
surveying and legal costs incurred with respect to any of them.
MGA, Section XII, 309 (1) The council may make by-laws for the protection of streets and may
limit the by-law to certain streets, or to certain times of the year, or to
both.
(2) For the purpose of the Motor Vehicle Act, the council is a local
authority.
(3) The council may, by policy, limit or prohibit the use of a mall by
vehicles, or classes of vehicles, and may restrict or prohibit parking on
a mall.
(4) The council may, by by-law
(a) establish a pedestrian mall on a street or any other land owned by
the municipality;
(b) prohibit any person from using any vehicle or apparatus on a
sidewalk in the municipality;
(d) designate any street as a controlled access street.
Statement of Provincial Interest (SPI) (d) identifying known environmental and health problems related to
Regarding Infrastructure, Provision 1. inadequate infrastructure and setting out short and long-term policies to
address the problems including how they will be financed.
Motor Vehicle Act (MVA), Section (2) No person shall ride a bicycle, tricycle, or similar machine on a
171 sidewalk, provided, nothing in this Section shall be deemed or
construed to prevent the use of velocipedes or similar machines by
children on a sidewalk in a public square, park, city or town.
(3) No person shall ride a bicycle on a highway except as near as
practicable to the extreme right of the main traveled portion of the
highway and no person shall ride a bicycle abreast of or generally
parallel to another bicycle in motion on the highway except for the
purpose of passing any such other bicycle. R.S., c. 293, s. 171;
revision corrected.

MVA, Section 171A Notwithstanding Section 171, a traffic authority appointed pursuant to
Section 86 may:
(a) designate a sidewalk or any portion thereof as a trail; and
(b) authorize and regulate the use of bicycles on such trails,
and, for greater certainty, a sidewalk so designated is subject to all
other provisions of this Act. 1997, c. 5, s. 1
MVA, Section 172 (1) Subject to subsection (2), it shall be an offence for a person upon
roller skates or a skate board to go on a roadway except while crossing
on a crosswalk or unless on a roadway authorized by the Minister.
(2) The council of a city or an incorporated town may exempt from
subsection (1) any roadway within that city or town that is not a
highway to which the Public Highways Act applies. R.S., c. 293, s. 172.
Amendment to Chapter 323 of the 12A (1) No person shall operate an off-highway (ATV) vehicle in or on:
Off-highway Vehicles Act (December (a) a wetland, swamp or marsh;
8, 2005) (b) a watercourse as defined by the Environment Act;
(c) a sand dune;
(d) a coastal or highland barren; or
(e) a sensitive area as designated by or defined in the regulations.
(2) Subsection (1) does not apply to
(a) peace officers in the performance of their duties;
(b) a frozen watercourse;
(c) a coastal or highland barren or wetland, swamp or marsh that is
covered by compacted or groomed snow of at least thirty centimetres
in depth;
(d) a wetland, swamp or marsh or a watercourse when use is
authorized pursuant to the Environment Act;
(e) a coastal or highland barren, a sand dune or a sensitive area when
use is authorized by an order or a license issued pursuant to this
Section.
Environment Act, Part I (B) the promotion of the development and use of sustainable, scientific
and technological innovations and management systems, and
(e) Government having a catalyst role in the areas of environmental
education, environmental emergencies, environmental research and
the development of policies, standards, objectives and guidelines and
other measures to protect the environment;
(f) encouraging the development and use of environmental
technologies, innovations and industries;
Environment Act, Part XI, Section 2 (f) prepare model by-laws and otherwise co-operate with municipalities
to promote improved air quality;
Beaches Act, Section (9) In an effort to create greater public awareness and understanding of
the beaches in the Province, the Minister may promote educational
programs that emphasize the importance of conserving beaches and
using them for recreational and other purposes in such a manner as to
maintain their environmental integrity. R.S., c. 32, s. 4; 1993, c. 9, s. 9.

Parks Development Act, Section 9 Where

(1) (a) a local community organization wishes to initiate and carry out a
project of local improvement by constructing and developing trails,
scenic waterfalls, streams or other local scenic or picnic areas; and
(b) that organization and the municipality in which the local scenic area
is located agree to each provide twenty-five per cent of the cost of such
construction and development,
the Minister may, subject to the approval of the Governor in Council,
grant financial assistance to any such municipality or local community
organization.
Provincial Parks Act, Section 21 (1) (b) open or close to travel the whole or any part of any highway, road,
trail or other area, except a public highway, situated within a provincial
park;
Trails Act, Section 2 The purpose of this Act is to

(a) establish and operate trails on Crown lands and over watercourses
for recreational use and enjoyment;
(b) establish trails on privately owned lands, with the prior consent of
the owners or occupiers;
(c) reduce the liability of the owner or the occupier of privately owned
lands where consent is given to designate a trail;
(d) establish and operate trails, either by the Department or through
agreement with persons, including municipalities, clubs, organizations
and other such bodies; and
(e) provide for effective management of trails and the regulation of trail
user activities to ensure quality user experiences. R.S., c. 476, s. 2.
Trails Act, Section 5 (1) The Governor in Council, upon the recommendation of the Minister,
may designate a trail over Crown land or, with the written consent of
the landowner or occupier, over privately owned land.
Trails Act, Section 7 Subject to any other enactment, the Minister may set aside Crown land
for the purpose of a trail. R.S., c. 476, s. 7.
Trails Act, Section 8 To provide for canoeing, boating and other recreational activities on
watercourses, the Governor in Council may designate such areas as a
trail. R.S., c. 476, s. 8.
Trails Act, Section 9 To enhance the physical appearance of the forests along a trail, to
promote the long-term diversity and stability of forest ecosystems and
to provide suitable habitat for wildlife, the Minister may develop special
management zones on Crown land adjacent to a trail and establish
similar guidelines to be developed and integrated into ongoing forest
management programs to be recommended for use on privately owned
lands which adjoin a trail. R.S., c. 476, s. 9.

Trails Act, Section 14 (1) For the purposes of this Act, the Minister may enter into agreements
with
(a) the Government of Canada;
(b) a province;
(c) a municipality;
(d) an agency of the Government of Canada, a province or a
municipality;
(e) a person;
(f) an organization, whether incorporated or not; or
(g) any combination thereof, for any purpose coming within the
provisions of this Act or the regulations.
Wilderness Areas Protection Act, The Minister may, in a wilderness area

Section 23 (2) (a) designate, develop and manage a trail or route for wilderness
recreation including, but not limited to, walking, hiking, canoeing,
kayaking and cross-country skiing;
(b) construct, manage and maintain such structures or facilities as are,
in the opinion of the Minister, required for wilderness recreation or for
the management or use of a wilderness area.
Wilderness Area Protection Act, The Minister may designate a trail or route within a wilderness area
Section 23 (3) upon which the use and operation of snowmobiles is permitted if
(a) the wilderness area is included in a Schedule to this Act, and the
trail or route existed before February 9, 1993, or in any other
wilderness area, the trail or route existed before the area was
designated as a wilderness area;
(b) the trail or route is an essential link with a more extensive
snowmobile trail network; and
(c) in the opinion of the Minister, the continued use or operation of
snowmobiles within the wilderness area will have a minimal
environmental impact on the wilderness area.
Wilderness Area Protection Act, The Minister may issue a license permitting the holder of the license to
Section 23 (5) use a vehicle or bicycle on a trail or route within a wilderness area to
enable access for wilderness recreation, sport fishing or traditional
patterns of hunting or trapping if
(a) the wilderness area is included in a Schedule to this Act and the
trail or route existed before February 9, 1993; or
(b) in any other wilderness area, the trail or route existed before the
area was designated as a wilderness area,
and, in the opinion of the Minister
(c) the continued use will have a minimal environmental impact on the
wilderness area; and
(d) no reasonable alternative exists to enable the access.

Appendix D – Draft Trail By-Laws
HALIFAX REGIONAL MUNICIPALITY
PROPOSED TRAIL BY-LAW NUMBER
RESPECTING THE CONDUCT AND ACTIVITIES OF PEOPLE AND DOGS ON DESIGNATED

MUNICIPAL TRAILS BE IT ENACTED by the Council of the Halifax Regional Municipality as follows:
Short Title
1 This By-Law shall be known as By-Law No. XXX and may be cited as the “Trail By-Law”.
Interpretation
2 (1) In this By-law,
(a) “Active Transportation” is any form of self-propelled (no-motorized) transportation that

relies on the use of human energy such as walking, cycling, inline skating and jogging;
(b) “Clerk” means the Clerk of the Municipality or the person designated by the Clerk to
administer this by-law;
(c) “Designated Motorized Vehicle Crossing Location” means a designated section of

Municipal Trail where All Terrain Vehicles (ATV) or other motorized modes can cross the
Municipal Trail in accordance with the Motor Vehicle Act and the Off-Highway Vehicle Act;
(d) “Dog” means any dog, male or female;
(e) “Improved Trail” means an identifiable off-road trail on the Municipality’s Active
Transportation Plan;
(f) “Motor Vehicle” means a Vehicle propelled by any power other than muscular power but
does not include a motorized wheelchair or other similar device;
(g) “Motorized Vehicle Link” means a designated crossing of an Improved Trail that is subject
to such limitations as are posted;
(h) “Municipal Public Park” includes any municipal park, school grounds, public swimming
areas, playgrounds or sports or athletic field, but does not include Provincial or Federal lands;
(i) “Municipality” means Halifax Regional Municipality;
(j) “Off Leash Area” is an area designated by signage as an area where dogs are permitted to be
without a leash subject to such limitations as are posted;
(k) “Owner” of a dog includes any person who possess, has the care of, has the control of or
harbours a dog, where the person is a minor, includes the person responsible for the custody
of the minor;

(l) “Runs At Large” means a dog off the premises of its owner and without a leash; and
furthermore a dog shall be deemed to be running at large where it is on any private property
or premises without the permission of the owner;
(m) “Trail Control Officer” means a police officer or a by-law enforcement officer appointed
pursuant to the Police Act; and
(n) “Unimproved Trail” means an identifiable path, track or public right of way on
Municipality property intended for use by Active Transportation modes.
PART I – REGULATION OF ACTIVITIES ON IMPROVED TRAILS
DOGS 3 (1) Unless otherwise permitted by this bylaw and By Law D-100, no
person shall allow any dog under their control, or for which they
are responsible, to be on Municipal Trails.
(2) A person may have a dog on Municipal Trail so long as the dog
is:
(a) leashed and on an Improved Trail or an Unimproved Trail;
(b) leashed and in an area governed by signage permitting dogs; or
(c) in an Off Leash Area.
(3) Notwithstanding this section, a person having a dog on Municipal

Trails remains subject, at all times, to every provision contained
in By Law D-100 respecting the registration and regulation of
dogs.
(4) While on Municipal Trails no person shall:
(a) kill, injure, trap, tease or disturb any animal, bird or other
wildlife; or
(b) touch, damage, disturb or remove any nest or egg therein.
MOTOR VEHICLES 4 No person shall:
(a) operate a motor vehicle on Municipal Trails except on a

designated rural crossing location; or
(b) operate an Off-Highway Vehicle, as per the Motor Vehicle Act

and the Off-Highway Vehicle Act, on Municipal Trails.
(c) drive or leave a motor vehicle on Municipal Trails during the

hours people are not permitted to enter or remain on Municipal
Trails as set out in this bylaw;
(d) service, maintain or, except in the event of an emergency, repair

a motor vehicle on Municipal Trails;

5 While on Municipal Trails no person shall:

FIRE PREVENTION
(a) start, maintain or permit to remain lit a fire except in a fireplace,
fire-pit or other similar receptacle provided by the Municipality
for this purpose;
(b) leave a fire burning unattended; or

(c) leave a fire without completely extinguishing any flame and
ensuring the embers are cold.

PRESERVATION OF
(a) enter into any undeveloped or natural area other than on an
NATURAL AREAS
Improved Trail or an Unimproved Trail;
(b) remove any rock, gravel, sand or soil;
(c) move, remove, cut or damage any tree, shrub, flower, other plant
or deadfall; or
(d) possess a chain saws or machete.

PROTECTION OF
(a) attach any poster, notice, advertisement or other similar item to
THE
any property except in an area designated by the Municipality for
ENVIRONMENT this activity;
(b) urinate or defecate except in a facility provided by the
Municipality for this purpose;
(c) leave garbage, litter or other refuse except in a receptacle

provided by the Municipality for this purpose;
(d) deposit grass clippings, dirt, rubble or other waste materials;
(e) deposit chemicals or pesticides; or
(f) foul the water of any lake, pond or other similar body of water.
RESTRICTED 8 While on Municipal Trails no person shall:

AREAS
i. enter any area to which access has been prohibited or regulated
by signage or fencing or other barricade; or
ii. move, remove or alter any signage or fencing or other barricade

prohibiting or regulating access to any area.
MUNICIPAL TRAIL 9 No person shall enter or be on Municipal Trails:

ACCESS
iii. between the hours of 11 p.m. and 5 a.m.; or
iv. at any time when a section of Municipal Trails is closed.

TRAIL USE 10 (1) Every person using an Improved Trail or an Unimproved Trail shall:
(a) yield the right of way to slower moving people; and
(b) use reasonable care when overtaking another person.
(2) No person shall use an Improved Trail or an Unimproved Trail in a

manner prohibited or regulated by signage governing the trail or any
portion of the trail.
(3) No person shall use an Unimproved Trail when conditions are such that
using the Unimproved Trail is reasonably likely to result in damage to
the facility.
DANGEROUS 10 While on Municipal Trails no person shall:

ACTIVITIES
v. act in a way, including throwing or propelling an object, that is
reasonably likely to cause injury to another person, or damage to
property;
vi. possess any firearm, bow, arrow or hunting type knife; or
vii. modify any land in a way that is reasonably likely to cause injury
to another person or damage to property.
OTHER MUNICIPAL 11 While on Municipal Trails no person shall:

TRAIL USERS
viii. do anything that is reasonably likely to disturb the peace or
enjoyment of other persons using the Municipal Trails; or
ix. interfere with the exclusive use of any section of Municipal

Trails granted to another person or group.
INTERFERENCE 12 No person shall interfere with a Trail Control Officer in the exercise of
their powers and duties pursuant this bylaw and By-Law D-100.
PART II – PENALTIES
The penalties will be prescribed in By-Law D-100.

Appendix E – Technical Recommendations

Technical recommendations and potential standards for all elements of the
Active Transportation system are outlined in extensive detail in the
companion report. Guidelines for off-road facilities as well as on-road
standards and solutions for addressing potential transportation,
communication and support facility needs are provided and are
recommended to be followed within the realm of appropriate engineering
judgment. For ease of reference, the technical recommendations are
summarized by topic.
Planning Considerations:
User Categories
1. Planning and design of the AT network should be primarily based on
two design modes: cycle based and pedestrian based. Most other
modes fall under these two categories.
2. Skateboarders, inline skaters and cross-country skiers have special

design requirements which should be considered when designing a
trail.
3. Although ATV’s are not an AT mode of travel, their requirements and

interaction with AT users should be considered where ATV use is
permitted. (See Draft Trails By-Law in Section 5.5.)
Bicycle Network Classification

4. The bicycle network portion of the HRM AT Plan should consist of a
primary “spine system”, and a secondary “community system”.
5. The spine system should consist of routes designed to be direct and

that support cycling for commuting purposes.
6. The spine network should be comprised mainly of on-road bike lanes,

paved shoulder bikeways with some wide curb lanes and signed-only
routes as well as linear off-road multi-use pathways, serving as a
higher-order cycling network for experienced and confident cyclists.
Most on-road facilities on Peninsular Halifax may consist of signed-
only routes due to spatial constraints.
7. The community system should consist of routes that lead into the
spine system. Community system routes should connect local
destinations such as schools, community centres, residential areas,
local stores, commercial nodes, parks and recreational areas.
Pedestrian System Classification

8. The pedestrian-based portion of the AT Plan should consist of a
pedestrian zonal system, which consists of connections between zones
and key missing links within zones.

9. The pedestrian zonal system should consist of geographic zones of

pedestrian facilities that see increased pedestrian infrastructure as one
gets closer to Regional Centre, schools and transit nodes.
10. Pedestrian zones should be connected to encourage longer and more

frequent trips across zonal boundaries.
11. Key missing links within pedestrian zones should be identified so

they may be scheduled as high infrastructure implementation
priorities.
Design Parameters:
General
12. The minimum ROW width of a multi-use trail should be between
3.0m and 5.0 and the minimum height should be between 2.4m and
3.0m where feasible.
13. The recommended minimum horizontal space for a pedestrian or

wheelchair is 1.5m.
14. The recommended operating space that should be allocated for an

inline skater is 3.0m of horizontal clearance, and 2.5m of vertical
clearance. Therefore, trails accommodating two-way travel should be
a minimum of 3.0m, or 4.0m (or wider) where frequent inline skating
is expected.
15. Providing the operating envelope design width of 1.5m for a cyclist is
recommended and should be provided whenever possible.
16. When conditions permit, an additional 0.5m should be included in the

width of the paved shoulder or bike lane for on-road facilities where
the grade of the road approaches or exceeds 8%, where possible.
Gradients
17. When grades exceed 8% and/or are in constrained situations, either
wide curb lanes or signed-only routes (descent) and Share the Road
signs (ascent) may be considered (1.5m + 0.5m = 2.0m).
18. On steep road segments where motor vehicle volumes or the percent
of commercial traffic exceed a desirable threshold for a cycling
facility type, consideration may also be given to reducing the posted
speed limit or selecting an alternative route for cyclists.
19. All off-road pedestrian and cycling routes (with the exception of
footpaths and hiking trails) should be designed in such a way that they
are accessible to cyclists, pedestrians, and those using mobility
devices.
20. Grades in excess of 5% should be avoided wherever possible on

accessible trails or those intended for inexperienced users.

21. Steps and ramps should be provided along routes where steep grades
cannot be avoided.
Design Speed
22. Where roadway design characteristics such as sight-distances and
curvatures exceed cycling route design parameters, special design
considerations should be given to any existing or proposed roads that
do not meet the minimum design parameters for a cyclist or may pose
a potential hazard to on-road users.
23. The guidelines set out in the companion report should be referenced
and any geometric modifications made as required.
24. Although new or improved HRM roads will typically be designed to

the “Red Book” roadway standards and thus exceed the minimum
design parameters related to speed for pedestrian and cycling
facilities, some existing roads may not. In these cases, additional
signing should be considered when implementing on-road facilities.
25. When designing off-road facilities, consideration should be given to

the design speed for cyclists and all other expected user groups.
Site Distance
26. The design of off-road cycling and pedestrian systems should take
into consideration stopping sight distances for bicycles and
wheelchairs.
Horizontal Alignment
27. Horizontal curves of roads proposed for on-road bike facilities should
conform to roadway design standards set out in the “Red Book”
and/or the TAC Geometric Design Guide for Canadian Roads. When
this condition cannot be met, additional cautionary signing should be
introduced.
28. Consideration should be given to providing additional width on off-

road bike segments at curves that have less than a 32m radius.
29. The Nova Scotia Trail Federation’s Trails Manual should be

consulted for issues relating to the width and route planning of off-
road trails.
Vertical Alignment and Cross Slope

30. Tables in the companion document address vertical alignment and
cross slope.
System Facility Types:

Bike Lanes - General
31. HRM should adopt bicycle friendly design guidelines for all streets,
whether a road is designated as part of a cycling network or not.
32. The minimum design width for a bike lane in an urban area without
on-street parking should be 1.2 m from the face of curb. Bike lanes

1.5m in width are recommended as a standard, while a preferred

width of 1.8 m should be considered on roadways with higher
AADT’s, speed limits, and truck volumes such as found on busy
arterial roadways
33. Bike lanes should be clearly identified on roadways through bicycle

route signing, bicycle symbol pavement markings and bike lane signs.
34. Bike lanes are typically recommended where feasible for collector
and arterial roads designated to have cycling facilities. In locations
where a bike lane is not deemed feasible following a review,
consideration should be given to providing a wide curb lane. If this is
not possible, as a minimum, a Bicycle Signed-Only Route should be
provided if thresholds permit.
Bike Lanes with On-Street Parking

35. On proposed bikeway routes in the Halifax Region where on-street
curb parking exists, an assessment should be undertaken to determine
whether the parking can be removed or relocated. In the event that
on-street parking is seen as a priority, parking bays should first be
considered as a preferred design
36. The desired width of the parking lane should be a minimum of 2.2 m,
with the adjacent bike lane 1.8 m. Where the road right-of-way or
other factors limit the opportunity to provide parking bays, standard
on-street curb parking widths should be assumed.
Contra-flow Bike Lanes

37. Contra-Flow bike lanes may be considered for streets designated for
one-way motor vehicle traffic to permit cyclists to travel in the
opposite direction of motor vehicle traffic. Cyclists may also ride in
the same direction as motor vehicle traffic in a separate bike lane or
share the motor vehicle travel lane.
Two-Way Bikeway Boulevards / Multi-Use Trails

38. Boulevard bikeways and multi-use trails are separated from regular
motor vehicle travel lanes and located in place of, or sometimes
adjacent to, a sidewalk. They should be used along primary
recreational corridors, reverse frontage lotting, and segments where
there are few if any mid-block driveways.
39. Appropriate signing at intersections where bi-directional bikeway

boulevards are present is very important to warn, and provide clear
direction to both motorists and cyclists as to where they should
proceed when travelling through an intersection.
Paved Shoulders
40. Paved shoulders are the preferred facility for creating connections
between rural communities.
41. Paved shoulder bicycle routes in the Halifax Region should have a
preferred design width of 2.5m (including a gravel shoulder). In

locations where this lane width for paved shoulders cannot be

achieved, especially in constrained rights-of-way, a minimum paved
shoulder width of 1.2 m with an adjacent granular shoulder of at least
0.5 m is a reasonable compromise.
42. Paved shoulder facilities should always be separated from the motor
vehicle travel portion of the road by an edge line (pavement marking),
and should be clearly identified through bicycle route signing. Edge
lines should only be used on rural roads where there are no curbs, and
should be a single line placed on the right side of the travel lane
closest to the paved shoulder.
43. Edge lines to denote a bike route are only recommended for paved
shoulders in rural areas since these roads typically have a gravel
shoulder beyond the paved shoulder for a cyclist to recover should
they be forced off of the paved section of the roadway.
44. Paved shoulders on rural roads should not be denoted as reserved

bicycle lanes since they should still be used as a refuge for disabled
vehicles. Paved shoulder cycling routes should only be signed as
bicycle routes.
Signed-Only Cycling Routes

45. Signed-only cycling routes are appropriate for the community system
that consists of cycling routes that are “local” in nature and feed into
the spine network.
46. Streets with signed-only cycling routes should typically only be

signed as on-road bike routes if there is adequate pavement width to
safely accommodate both motor vehicles and cyclists, and when
adequate sight lines and acceptable AADT volumes exist.
47. On very low volume rural roads with limited truck traffic, good sight
lines and sometimes physically constrained ROW’s, the existing
travel lane may be designated as a cycling route, with cyclists and
motorists expected to share the same lane. In these cases, “Share the
Road” signs should be erected at strategic locations to communicate
this message to all road users.
Signed-Only Cycling Routes on Wide Curb Lanes

48. The preferred width for a wide curb lane is between 4.2m and 4.25
m.
49. In urban areas, proposed signed-only cycling routes should be

implemented along roads with wide curb lanes and bicycle route
signs, where possible.
50. Where the width of a wide curb lane extends beyond 4.0m along a
designated cycling route, the application of pavement markings such
as a bicycle stencil should be considered to indicate the presence of
cyclists on the roadway to motorists.

Sidewalks
51. Existing and future pedestrian sidewalks should be incorporated into
the spine and neighbourhood systems in urban areas for all system
segments proposed within road rights-of-way.
52. A “buffer” zone should also be provided where applicable to separate

pedestrians from the street.
53. Different sidewalk surface materials should be used when designing

sidewalks. Patterns of cross-hatching, dimpling or scoring should be
applied at sloped or potentially slippery areas.
Multi-Use Trails
54. The recommended minimum width for a multi-use trail is 3.0m.
55. The recommended minimum clear height for a multi-use trail is 2.4m
– 3.0m.
56. In locations where high use is anticipated, trails with a width of 4.0m
or even 5.0m should be considered, where feasible.
Retrofitting Municipal Roads

57. Tables in the companion document contain retrofitting guidelines
recommended for municipal roads.
System Design Features

Intersection Treatments (Cycle Based)
58. HRM should continue to use its current pavement marking scheme for
on-road bicycle facilities and consider the use of Shared Use Lane
Markings where applicable.
Bike Lanes / Paved Shoulders at Intersections

59. Cycling facilities at intersections should be carefully designed to
encourage safe and predictable movement of pedestrians, motorists
and cyclists.
60. Any “hatched” area along rural paved shoulders at intersections with
right-turn lane curbs should not be designated as an on-road cycling
facility unless it is greater than 1.2 m in width and it forms part of a
continuous cycling route.
61. A detailed review of intersections with sub-standard bike lanes should

be undertaken when intersections are improved to determine if
sufficient right-of-way can be obtained to provide standard bike lanes
at these locations.
Coloured Pavement Surfaces

62. Coloured pavement treatments should be considered at intersections
with complex geometry or in areas with high conflict zones between
cyclists and motorists.

63. Appropriate signing should be used in conjunction with the coloured

pavement to identify to both motorists and cyclists the priority at an
intersection.
64. Should HRM decide to pursue coloured pavement, the emerging

technology of “microsurfacing” should be investigated.
Cyclists Crossing at Traffic Signals

65. HRM should initiate a practice of considering bicycles in the timing
of traffic signals at intersections and in the selection, sensitivity and
placement of vehicle detection devices wherever there is bicycle
traffic.
66. The application of pavement markings is recommended to increase

the efficiency of bicycle detection at intersections to actuate either a
mixed traffic or bicycle signal phase. These pavement markings could
also help to direct cyclists to the actuation zone and to position
themselves properly in the lane.
67. Since cyclists are considered vulnerable road users, consideration and
care must be given to them when designing facilities for their use.
68. The general countermeasures indicated in a table in the companion

document should be considered for minimizing common motor
vehicle and cyclist collisions.
Advanced Stop Bars and Bike Boxes

69. Advanced stop bars and bike boxes should be considered at locations
in the Halifax Region where cyclist volumes are high and measures
are being considered to give cyclists more priority at intersections
(e.g. adjusting signal timings or phasing sequences).
Bike Pockets
70. The minimum 60 m transition zone between the curbside cycling
facility, and the bike pocket, left of the right turn lane / channel,
should be maintained whether the curbside facility is a bike lane,
paved shoulder or signed-only route.
Bike Lanes Between Two Motor Vehicle Lanes

71. When a bicycle lane situated between two motor vehicle travel lanes
extends for a distance greater than 240 metres, consideration may be
given to relocating it to the curbside of the roadway with the
applications recommended by TAC for a Bicycle Lane Adjacent to a
Curb Lane Transition applied at each end of the roadway
Facilities on Bridge Structures and Highway Interchanges

72. Given the absence of applicable local guidelines, the values indicated
in a table in the companion document should be referenced for
determining the minimum side clearances on bridges when the
installation of cycling facilities on bridges is being considered.

73. The creation of a bike lane on a bridge may be considered if the

bridge has shoulders, or if the traffic lanes are wide enough to permit
the creation of a wide curb lane to accommodate bicycles on the
travelled way.
74. The TAC standards for accommodating on-road bikeways over

expressway interchanges should be adopted by HRM for future
cycling facilities.
75. In situations where it may be more desirable to allow a cyclist to

choose their own merge, weave or crossing manoeuvres, it is
recommended that the pavement markings for the bicycle lane be
discontinued through the crossing area.
76. Coloured pavement may also be considered for the portion of the
bicycle route crossing the motor vehicle travel lane.
Active Transportation in Construction Zones

77. HRM should ensure the accommodation of pedestrian and cyclist
safety and access during all road construction activities. This should
include but not be limited to: construction notices posted on the
Region’s website; advance signing for construction activities;
temporary conditions that are compatible with bicycles such as non-
slip surfaces; ramped utility cuts and timber decking placed at right
angles to the direction of travel; and pedestrian and bicycle specific
detours where appropriate.
Coloured / Textured Pavement

78. HRM and the Department of Transportation and Public Works should
investigate the possibility of using coloured and/or textures pavement
at high volume crossings and at 100 series highways on and off
ramps.
Pedestrian Crossings at Traffic Signals

79. Pedestrian displays should be installed at all signalized intersections
and should be placed at levels that are clearly visible to pedestrians
and motorists. Push buttons for pedestrian signals should be placed at
heights that are within reach of all pedestrians, including children and
those in wheelchairs or other mobility devices. Countdown and
audible traffic signals are other enhancements that may be considered
for signalized intersections in the Halifax Region.
80. A study of the effectiveness of animated signals in reducing

pedestrian injuries at crosswalks should be undertaken. If the results
are favourable toward animated signals, a program to install these
signals at high conflict intersections should be initiated.
Sidewalk Extensions
81. HRM should consider the installation of sidewalk extensions along
key pedestrian routes, especially along routes that form part of the
community pedestrian system.

Curb Ramps
82. Curb ramps should be provided on all route segments that are
identified or signed to accommodate wheelchairs. Curb ramps should
be added where any new sidewalks are constructed.
Advanced Stop Lines

83. Advanced stop bars are recommended in locations where there are
heavy right-turning traffic volumes and no exclusive right turn lanes
are provided.
Pedestrian Mid-Block Crossing Treatments - General

84. HRM should review its spacing threshold for installing mid-block
pedestrian crossings to ensure it strikes the best balance between the
needs of motorists and pedestrians.
Pedestrian Refuge Islands

85. HRM should consider pedestrian refuge islands as an appropriate
measure to accommodate a mid-block crossing on high volume and/or
multi-lane roads.
Mid-Block Signal Controlled Crosswalks

86. HRM should continue to use mid-block signal controlled crosswalks
and expand the program to other locations, where appropriate.
Advanced Stop Yield Markings

87. HRM should continue to evaluate the effectiveness of the advanced
stop / yield markings and implement them at intersections where they
would be most effective if test results continue to be positive.
Rails with Trails

88. Railroads with wide enough rights-of-way can typically accommodate
a multi-use trail.
89. Trails adjacent to active and / or under-utilized rail corridors should

be separated from the rail line through the provision of a planted berm
or fence.
Off-Road Barriers
90. Barriers should be considered at off-road trail entrances to prevent
access by unauthorized users such as motor vehicles and ATV’s, and
to caution trail users that they are entering or exiting a trail
environment.
91. Other barriers should be installed where appropriate.
92. Barriers should not restrict access to those with disabilities.
Trail Bridges
93. Multi-use trail bridges should be designed with non-slip surfaces,
have vertical railings attached to the outside of the structure and
include cover plates over expansion joints.

94. The Nova Scotia Trails Federation’s Trails Manual features detailed
information on the suitability of many bridge types and should be
consulted before any trail bridge decisions are made.
Safety “Rub Rails”

95. Safety “rub-rails” may be considered along bicycle trails with railings
to prevent a cyclist’s handlebar from catching the vertical supports of
the railing.
Crime Prevention Through Environmental Design (CPTED)

96. The four main underlying principles of CPTED as outlined in Section
4.5.3 of this report should always be considered when implementing
the AT Plan: natural access control, natural surveillance, territorial
reinforcement and maintenance.
97. Properly located entrances, exits, fencing, landscaping and lighting

should direct both foot and automobile traffic in ways that discourage
crime.
Accommodating Active Transportation Users in Roundabouts

98. The needs of AT users should be fully incorporated into any
roundabout designs in the Halifax Region.
Transition Between Facility Types – General

99. Transitions between different facility types is especially important
between on-road cycling facilities and off-road cycling facilities or
multi-use trails as they typically require a change in the cyclist’s
trajectory and / or a transition between routes shared with motor-
vehicle traffic to routes that are not, or vice versa
100. Appropriate signing and / or pavement markings should be installed

to direct cyclists to the new cycling facility type.
Bicycle Parking
101. Bicycle racks should be designed to provide lateral support to the
parked bicycle and should be made from materials that can resist
being cut by common hand tools such as bolt and pipe cutters,
wrenches and pry bars.
102. Racks, whether as single units or grouped together, should be securely

fastened to a mounting surface to prevent the theft of a bicycle
attached to a rack.
103. Bicycle racks should be placed adjacent to the entrance that it serves
without inhibiting pedestrian flow in and out of the building. Rack
areas should be no more than 15 m from an entrance and should be
clearly visible along a major building approach line.

Network Amenities
Bicycle Friendly Catchbasin Covers
104. HRM should ensure that all catchbasin covers are bicycle friendly.
Bicycle covers on proposed bicycle routes should receive priority for
adjustment.
Rest and Staging Areas

105. Rest and staging areas should be provided at strategic locations along
the AT route system. HRM and its partners, including the private
sector, should work together to identify and implement rest and
staging areas, where possible.
Gateways and Trailheads

106. It is suggested that a hierarchy of Regional and Local Gateways be
established that represents region-wide and local level contexts.
107. Gateways should become a recognizable feature in the Halifax

Region’s landscape to both tourists and residents alike.
108. Gateways should become an integral part of the marketing initiative

and should be identified on bike maps and other AT maps.
Active Transportation and Transit - General

109. HRM should further promote and expand its bus-mounted bike rack
program to include conventional transit buses, eventually covering all
Metro Transit core routes. Quality bicycle parking facilities should
also be provided at transit and ferry terminals throughout the Halifax
Region.
Linking Terminals to Pedestrian Facilities

110. Transit terminals should feature safe and convenient pedestrian
access, including direct links to sidewalks and major destinations.
Trip End Facilities for Commuters

111. HRM and its partners should provide trip-end facilities for employees
and visitors at all public buildings where feasible, and the private
sector should be encouraged to do the same. The option of
development incentives for new commercial and mixed use projects
should be investigated by HRM.
112. Consideration should be given to promoting and / or implementing

trip-end facilities as part of efforts to apply a region-wide
transportation demand management (TDM) strategy.
Route and System Signing

Signage Formats
113. HRM should develop a formal logo for the HRM AT system.
114. HRM should develop and implement a formal on and off-road AT

System Signing Plan to support the existing and proposed system.

115. HRM should ensure that all designated bicycle routes are properly
signed.
116. All AT signage should be consistent throughout the Halifax Region.
Maintenance
General
117. When possible, especially in the spring, summer and fall months,
priority consideration should be given to debris removal on arterial
roads with cycling facilities and sidewalks.
118. Off-road trails should be swept at least once a year following winter
and / or prior to special events except those that are designed to be
challenging and would be compromised by sweeping.
119. The maintenance of AT facilities should be based on HRM’s road,

sidewalks and trails maintenance standards.
120. In the spring, summer and fall months, a program of litter, debris and
leaf removal for AT facilities should be implemented.
121. Other maintenance guidelines set out in the companion report should
be adopted by HRM as the basis for a maintenance regime for on-road
and off-road AT system maintenance.
Snow Clearing
122. In the winter months, on-road and off-road AT systems that serve as
part of the primary cycling network should receive priority for snow
clearing and removal.
123. HRM should ensure that bus stops and sidewalks, particularly those
that connect to bus stops, receive a higher priority during snow
clearing efforts.
124. HRM should provide sidewalk snow-clearing throughout the entire

municipality in order to provide a uniform standard of service.
125. Consideration should be given to clearing trails during the winter that
provide key connections or links to “spine” segments of the AT
system.

Appendix F – Recommended Educational and

Promotional Campaign Framework
Investing in the physical infrastructure to support Active Transportation can
help to achieve a level of increased use by the public but should be pursued
in tandem with campaigns addressing public education and system
promotion to be successful.
In general, the term “Active Transportation” is often not well understood,

particularly by those who don’t use it. Non-users who are otherwise active
tend to equate it only with physical activity and report that they are already
active, in other settings, as a partial rationale for not pursuing Active
Transportation. Others equate AT with public transit and it is again the non-
users, in particular, who offer that they already use public transit, making AT
somewhat redundant for them. Even current users of AT have often not
clearly grasped the concept and in fact, many have not heard of Active
Transportation in particular - it is just something they do.
Social barriers represent one of the major disincentives for travel by AT

modes and public transit. At a focus group for youth conducted in Halifax as
part of Go for Green’s 2005 National Active Transportation Survey, the bus
was identified as the “loser cruiser”, and the majority agreed that their
parents considered it “unsafe” for them to travel to school by
walking/wheeling. Adults, commenting in similar focus groups held in other
Canadian cities, indicated that the general attitude from non-walkers and
non-wheelers ranged from viewing them as “fitness fanatics” to eccentric.
Those who did not currently use Active Transportation acknowledged many
of the health and environmental benefits that could be obtained from shifting
their behaviour but also stated that they could not imagine the circumstances
that would make them choose not to use their car. 68
In order to overcome the significant social barriers that have arisen in

society, especially among automobile drivers, and to addresses genuine
safety issues associated with AT modes of travel, a campaign to promote
Active Transportation must be developed and implemented. This campaign
is critical to the success of the AT Plan and must begin as soon as possible,
be consistent, and remain ongoing. The framework set out in this Appendix
supports the continuation and improvement of initiatives in areas of
education, promotion, enforcement and safety.
Education
Measures to improve walking and wheeling wellbeing on Halifax Region

streets should not be limited to engineering solutions. Education is a critical
68
Allium Consulting Group, Report on Active Transportation Focus Groups, 2005.

component of the mix of techniques required. If walkers/wheelers and/or

motorists do not know how to respond correctly to a travel indicator or safety
device such as a traffic signal or flasher, the crossing will not operate safely.
Education programs should be implemented to teach motorists and AT users
about safe practices as well as the laws that govern them.
One of the most important educational needs is found in the perceptions of

pedestrians and cyclists by motorists. Most motorists do not routinely look
for AT users, especially during heavy vehicle traffic times and this is in part
a result of how motorists have been educated. There can be an underlying
assumption that walkers and wheelers should not be in the road and
educators and law enforcement officers need to work to change these views
if all modes of transportation are to be accepted as legitimate users of the
street network.
Cyclists and pedestrians also need to become better aware of the rules of the
road, their responsibility for their own safety as well as proper and permitted
interaction with motorised vehicles. Cyclists in particular often navigate in
an environment designed primarily for automobile use and a lack of
knowledge surrounding road etiquette can be dangerous.
Educational programs are more effective when they are part of a long-term
program and not just designed to achieve short-term changes. There are three
basic approaches for educational programs of this nature:
1. Public awareness campaigns - These programs involve increasing

knowledge and motivating positive behavioural changes. They can
sensitize motorists to their responsibilities toward pedestrians, cyclists,
and other AT uses. These campaigns can also be directed toward
educating walkers and wheelers as well as motorists about safety risks
and explain the meaning and proper use of crosswalks, traffic signals, on
road markings, other AT infrastructure and vehicle etiquette.
2. Campaigns to targeted groups and situations - These may include

educational materials targeting groups such as older adults, children,
cyclists or motorists. They may also focus on specific issues such as
crosswalks, school zones, or crossing at signalized locations. To obtain
best results, it is important for targeted campaigns to be institutionalized
within an organization so they can be implemented on a long-term basis.
3. Individual campaigns - Similar to targeted campaigns, these differ in that

the target audience is reached through an intermediary such as a
paediatrician, parent, or a grandparent and on a one-on-one basis. For
example, school crossing guards or classroom teachers may instruct
students about safe behaviour when getting on or off the school bus or
how to cross streets safely.

A wide number of innovative educational campaigns have been undertaken

in different municipalities across the country to achieve similar goals. A few
effective examples include:
• Flyers could be sent to households along with utility bills. The flyers
provide safety tips for walkers/wheelers and motorists and address some
of the common causes of conflicts and how to avoid them.
• Large highway signs erected at locations where they would attract the
most attention and provide feedback on the percentage of drivers
yielding to pedestrians during the past week along with the record. The
numbers on these signs were changed on a weekly basis.
• Small signs erected at a number of crosswalks instructing pedestrians

how to safely cross the street. These signs instruct pedestrians to extend
their arm while placing one foot in the street, wait until cars stop, and
thank drivers with a wave and a smile. At other sites, the message
“EXTEND ARM TO CROSS” was painted in the crosswalk facing the
curb.
• A classroom intervention was designed for all elementary and junior

high students. This included a special folder with a summary of the
program, an “I YIELD TO PEDESTRIANS” bumper sticker, a copy of
an information pamphlet for each pupil to take home, and a 20-minute
lesson plan explaining the proper way to walk and bike on the streets
prepared for each home room in the target community. The lesson plan
teaches safe crossing skills by demonstration, role-playing, and practice
with feedback. Posters explaining the correct way to cross the street were
sent to senior high schools and senior citizen homes.
• Crosswalk guards received a two hour training session and a large supply
of pins to give to pupils when they exhibited proper crossing behaviour.
Although children were encouraged to signal their intention to cross the
street by extending their arms, the crossing guard crossed with the
children using a stop sign in the usual manner.
• School Boards were approached to conduct safety audits of their

neighbourhoods. The school boards worked with parents, students and
teachers, organizing public meetings to review the walking and wheeling
situation around all of their schools. These meetings determined both the
safest routes and areas where improvements were required. They liaised
with municipal engineering staff to deal with situations requiring
changes to the physical infrastructure, and instituted Walking School Bus
and other programs to promote greater student activity.
Currently, there are also a number of educational resources available either

as hard copy or through the HRM website:

• Basic Rules of the Road for Young Children – a two-page information

sheet of basic bicycle safety information for children prepared by the
HRM.
• Parents Safety Equipment Page – a three-page guide for parents on how

to make cycling safe for their children, prepared by HRM staff.
• Just for Kids – simple puzzles designed for very young children,
intended to introduce bicycle terminology, prepared by HRM staff.
• Bicycle Book – a comprehensive 30-page booklet published by Service

Nova Scotia and Municipal Relations, designed for youth, that provides
information on choosing the right bicycle, riding and maintaining a
bicycle, and rules of the road.
• Pedestrian Safety is No Accident – a brochure published by the Road

Safety Advisory Committee, Nova Scotia Transportation and Public
Works, designed for both pedestrians and motorists, which provides
information about crosswalk safety.
• Nova Scotia Bicycle Safety – a pamphlet produced by Nova Scotia

Transportation and Public Works, designed primarily for cyclists, that
provides bicycle safety information.
Many of these brochures are new and very thorough. However, their
effectiveness is limited to those who pick up the publications or actually visit
the web sites and download the brochures, some of which are quite large
files. In addition, the range of information available is limited and the
majority of educational resources are focused on youth and cycling.
Although some include information for motorists, all focus on the walker and
wheeler as having the primary responsibly for safety.
A number of excellent new publications have become available in other parts

of the country that may also be considered for promotion. They represent
resources that can easily be adapted for use in the Halifax Region:
• Walking, The Activity of a Lifetime – produced as part of Ontario’s

Active 2010 program, this 12-page booklet is an excellent introduction to
the benefits of walking. It provides methods to begin and maintain a
walking program. www.active2010.ca.
• Bike Sense – a guide to skills of the road, bike handling, traffic signals,
and other issues, this 34-page booklet is published by the Greater
Victoria Road Coalition. It provides very detailed information about
cycling and traffic skills.

• Bicycles at Rest – is an excellent pamphlet produced by Capital bike and

Walk of Victoria, BC. (wwwcapitalbikeandwalk.org). This 18-page
booklet features guidelines on bike rack choices and efficient site
planning. It is an ideal easy reference for schools, businesses, and other
institutions.
Significant online resources exist that may be used to obtain education

material:
• National Centre of Biking and Walking – (www.bikewalk.org) this US

based NGO maintains up-to-date inventories of walking guidelines,
bicycle policies, and other technical resources.
• Rails to Trails Conservancy – (www.railtrails.org) maintains a

clearinghouse of documents that cover every aspect of the acquisition,
construction, and maintenance of abandoned rail-lines.
• Vélo Québec – (www.velo.qc.ca) has continuously encouraged the use of

the bicycle, whether for tourism purposes or as a means of clean and
active transportation, so as to improve the environment and the health
and well being of the public. They have developed a series of technical
guides for biking and offer workshops in the basics of facility design and
operation.
In order to advance public awareness of AT as a viable mode of travel, and

to improve the safety of both motorists and walkers and wheelers, the
delivery of educational information should be expanded to a wider range of
residents by taking advantage of a variety of other media in a multi-faceted
communications strategy that has support from a stable level of funding.
HRM should also ensure effective messages are displayed for promoting AT
travel and education. This should include advertisements on transit vehicles
and bus shelters and the distribution of cycling information through
pamphlets as well as promotion through the non-print media.
HRM already distributes household information through the mail with its
recycling programs. This and other examples are opportunities that could be
used and shared with community partners to achieve the widest distribution
of cycling information to residents. Information outlining the numerous
benefits of Active Transportation should regularly be included in educational
material distributed to the public.
Specific bicycle educational programs, such as CAN-BIKE and

SPOKEKIDS should be promoted in schools and in workplaces.

Promotion
A strong marketing program aimed at changing behaviour is required to

encourage more walkers and wheelers. Current attitudes toward these modes
of travel will mean that the public may be slow to respond to improvements
in infrastructure that makes walking and wheeling more convenient.
Increased promotion of well-known and nation-wide programs will perform

much of the improved marketing required, and create an opportunity for the
municipality to build on existing resources and partnerships:
• Active and Safe Routes to School – is a national program that encourages

students to walk, bike or use other human-powered modes of
transportation to travel to and from school. The benefits of this program
include increased physical activity, less traffic congestion around
schools, safer streets, and improved air quality in our communities.
Currently coordinated by the Ecology Action Centre, this program
should be encouraged in every school in the Halifax Region.
• Commuter Challenge – The Commuter Challenge is a friendly

competition between Canadian communities to encourage the use of
sustainable modes of transportation to and from work. It takes place
during Environment Week, typically the first week of June and coincides
with Clean Air Day. Coordinated by TRAX in HRM, the Commuter
Challenge targets businesses. It should be expanded, initially within
HRM staff themselves, but through incentives and outreach through the
Chamber of Commerce.
• International Trails Day – International Trails Day, held the first

Saturday of June, is dedicated to celebrate trails, their development, uses
and the healthy lifestyle they encourage. Coordinated by the Nova Scotia
Trails Federation and the Halifax Regional Trails Advisory Team, this
event promotes awareness and use of the off-road network options. This
should be promoted far more widely as the spine off-road network
becomes integrated with transit and other travel options.
• Bike Week – held in early June, Bike Week encourages bicycle usage for
all travel activities, utilitarian and recreational. It is quite actively
encouraged by the HRM currently.
• International Walk to School Week – During International Walk to

School Week, children walk to school with parents, school staff and
community leaders. They learn safe routes to school, and safe pedestrian
and cycling skills. Typically held in the first week of October, this can be
linked with the Active and Safe Routes to School Program.

• Take The Roof Off Winter – Promoted by the Nova Scotia Health
Promotion in partnership with Recreation Nova Scotia, the Recreation
Facility Association of Nova Scotia and Go for Green, this December
initiative encourages the public to get outside, be active and enjoy winter
months. AT promotion can easily be incorporated into its message.
• Trail Information Project – (www.trails.gov.ns.ca) operated by Nova

Scotia Health Promotion, which has a mandate to promote AT, this
provincial trails inventory can be used to promote the off-road network.
With an existing web resource available to be supplemented with up-to-
date information, possibly even the on-road network can be profiled and
advertised at relatively little cost.
In addition to these existing resources, relatively simple new initiatives can

substantially assist in promoting AT use and reducing social barriers:
• Integrate the AT Network into Municipal Maps – The Halifax road maps
should have the AT network included as an integral part of its featured
information. This should include the off-road system, important links
with transit hubs, and location of dedicated bicycle parking and other
amenities.
• Award System – A number of Canadian cities have instituted annual

awards for the outstanding participation of individuals in biking or
walking. This is a very low cost method of highlighting participation in
AT and shifting public perception. Schools and businesses that make
significant investment in AT policies or facilities should similarly be
recognized.
• Work closely with School Boards – School boards should provide

elementary grades with walking and wheeling education that would
result in AT becoming an integral part of life at school. Examples of
school board initiatives could include introducing the Active and Safe
Routes to School in every facility in the Halifax Region. All schools
could be encouraged to take part in Walk to School Week. Courses such
as the CAN-BIKE bicycle-training program could be incorporated into
the physical education curricula.
• Utilize the Community Health Boards of Capital Health to promote

Active Transportation Among its Clients - These boards already operate
under a mandate to build healthier communities and believe in both
improving lifestyle behaviours and in addressing the underlying
conditions that lead to poor health choices. These boards should
distribute information to users of health care in their areas, promote AT
on the websites and publications and include AT interventions in their
community health plan.

• Support and Expand the Open Streets Council – This initiative could be
coordinated through the Ecology Action Centre’s TRAX program, in it’s
efforts to promote walking/wheeling use of urban streets. This initiative
should be used as a major opportunity to promote regular and ongoing
non-motorized employment of “streespace” as well as a forum to hold
educational workshops related to walking/wheeling safety.
• Support the Provincial Walking Initiative Endorsed by the Nova Scotia

Health Promotion and Protection and Heart and Stroke Foundation of
Nova Scotia - If adopted provincially, this initiative will provide
information, resources, education and recognition for individuals,
schools, workplaces and communities to take action on a personal
through to community level.
One of the Heart and Stroke Foundation of Nova Scotia’s key strategic
priorities is physical activity. A provincial walking initiative is one of
many partnerships the Foundation is involved in to affect physical
activity levels, including Make a Move, Move More as well as other
projects in the developmental stages.
The Physical Activity, Sport and Recreation area of Nova Scotia Health
Promotion and Protection (NSHPP) aims to increase physical activity to
improve health and prevent chronic disease of Nova Scotians through
leadership, support, education and promotion, advocacy, research and
policy. NSHPP is involved with several provincial initiatives that
support walking including: Active and Safe Routes to School, Take the
Roof off Winter and Pathways for People Framework (Active
Transportation) and trail development.
Enforcement and Safety
Historically, police departments around the country have enforced traffic

laws pertaining to driving under the influence, speeding, running red lights
and any number of other regulations. They have developed effective and
socially accepted methods for measuring this behaviour and apprehending
offenders. However, enforcement of right-of-way laws has sometimes
proven more difficult, as police forces have often focused attention on more
objective violations and/or not provided appropriate training to police
officers in this regard.
Enforcement programs can increase the percentage of motorists yielding to

pedestrians and also motorist awareness of walkers and wheelers. They can
target motorists that pass vehicles that are yielding to AT users as well as AT
users themselves that do not follow the “rules of the road”. As an example,
large increases were measured in yielding behaviour in three Atlantic
Canadian cities employing enforcement combined with educational outreach
and engineering interventions. Although safety may have been greatly

influenced by the engineering interventions, the enforcement component

increased yielding behaviour overall. 69
Police enforcement is a primary component in maintaining a safe

environment for all modes of travel. Well-publicized enforcement campaigns
can be effective in deterring careless and reckless driving and encouraging
drivers to share the roadway with pedestrians and bicyclists.
There are a number of actions that municipalities can initiate to implement

enforcement campaigns designed to encourage AT use. These include
increased police presence around school zones, residential neighbourhoods,
and other areas with high pedestrian activity; “pedestrian stings” involving
police officers in civilian clothing; and media campaigns to notify of changes
and to help set the public agenda.
Enforcement campaigns should consider the following:
• Campaigns must be sensitive to the needs of different neighbourhoods,

age/ethnic groups, etc.
• Police officers need to be trained properly beforehand.
• Enforcement should be conducted with the help of staff support and

awareness of the courts.
• Enforcement operations should begin with warnings and flyers before

moving on to issuing citations for violations.
It is important to reinforce the concept that enforcement should be applied to

all road and pathway users, not only motorists. The Halifax Regional Police
provides bike patrols that serve as an excellent community policing resource.
These officers should all be trained with CAN-BIKE safe cycling courses.
When dealing with AT users, especially wheelers and as physical AT

infrastructure is improved, sidewalk cycling should be targeted as a specific
driving offence. Similar to other safety blitzes that have been implemented in
the past, AT rule compliance should be part of the police force’s regular plan
to apply year-round enforcement.
Halifax Regional Police enforcement expertise is crucial for both law

enforcement and the collection of accurate pedestrian/cycling collision data.
They also provide expertise in the identification of safety and enforcement
priorities and the development of assistance materials for pedestrians and
cyclists involved in collisions. Police officers should receive instruction in
69
Malenfant, L. and Van Houten, R. (1989). “Increasing the Percentage of Drivers Yielding to Pedestrians in
Three Canadian Cities with a Multifaceted Safety Program.” Health EducationResearch 5, pp 274-279.

the proper training of walkers and wheeler’s rights and understand operating
the characteristics of bicycles to better identify causal factors when
investigating collisions.
Effective enforcement of usage regulations on the off-road network is a

significant challenge that will need to be addressed in order to have these
fully integrated into the AT network. The Nova Scotia Volunteer Trail
Patrol, initiated through the Nova Scotia Trails Federation and delivered
through community trail associations, can be an effective volunteer
monitoring program that will extend limited enforcement resources.
Partnerships with the RCMP, who have jurisdiction in some suburban and
rural areas, will be critical to ensure compliance in some areas. The RCMP
also operates their own patrol of the off-road system in some areas. An
integrated partnership between Halifax Regional Police, the RCMP, and
volunteer trail patrollers could be a useful partnership to ensure adequate and
consistent monitoring of use of the AT network.

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Prepared for

Halifax Regional Municipality

Consulting Services for

Active Transportation Plan

SGE Acres Limited – Marshall Macklin Monaghan Limited – Go For Green

5.5.2 Enact A Trail By-Law ................................................. 5-6

Appendix A - HRM Reports and Literature Review: Benefits of

Exhibit 1.1 Existing and Previously Planned AT Routes and Facilities

SGE Acres Limited – Marshall Macklin Monaghan Limited – Go For Green

Exhibit 2.4 Barriers and Destinations

SGE Acres Limited – Marshall Macklin Monaghan Limited – Go For Green

For the Halifax Region, Active Transportation is defined by four categories.

• Active Commuting which involves journeys to and from work.

• Active Recreation which involves the use of an AT mode for fitness or

The challenges facing implementation of the Active Transportation Plan in

A central goal of the Active Transportation Plan is to double the number of

SGE Acres Limited – Marshall Macklin Monaghan Limited – Go For Green

and facility types is recommended to appeal to a wide range of skill levels

• Off-Road Multi-Use Trails

As these routes and facilities are implemented, an educational and

A network concept is recommended that includes a hierarchy of routes and

• A Primary “Spine” System

SGE Acres Limited – Marshall Macklin Monaghan Limited – Go For Green

In 2005, SGE Acres Limited, in association with Marshall Macklin

The overall goal of the project is to create a well-connected, safe and

SGE Acres Limited – Marshall Macklin Monaghan Limited – Go For Green

SGE Acres Limited – Marshall Macklin Monaghan Limited – Go For Green

The research methodology contains features that are different from

Vision, Goals & Objectives

Existing Changing Needs: Expected Future

HRM & Province

The report contains five sections plus appendices. Section 1, Introduction,

SGE Acres Limited – Marshall Macklin Monaghan Limited – Go For Green

approach, route selection principles and evaluation criteria. Section 5,

The appendices section includes related and background material. Appendix

1.2 Active Transportation Defined

Active Transportation (AT), by definition, is any form of self-propelled

For the Halifax Region, Active Transportation is defined by four categories.

• Active Commuting which involves journeys to and from work.

• Active Recreation which involves the use of an AT mode for fitness or

SGE Acres Limited – Marshall Macklin Monaghan Limited – Go For Green

1.3 Why Pursue An AT Plan For HRM?

Many benefits will result from implementing an Active Transportation

The challenges facing implementation of the Active Transportation Plan in

There is a consensus opinion by health care professionals, urban planners

SGE Acres Limited – Marshall Macklin Monaghan Limited – Go For Green

SGE Acres Limited – Marshall Macklin Monaghan Limited – Go For Green

The literature confirms that the building block of an active recreation,

SGE Acres Limited – Marshall Macklin Monaghan Limited – Go For Green

It is not realistic to expect an average new cyclist to travel as great a distance

1.4 Vision, Goals and Objectives

“Develop a region-wide, visible and connected Active Transportation

SGE Acres Limited – Marshall Macklin Monaghan Limited – Go For Green

1. Build upon existing and previously proposed initiatives, such as the

2. Double the number of person-trips by Active Transportation modes

3. Make conditions for walking, cycling and other modes of Active

SGE Acres Limited – Marshall Macklin Monaghan Limited – Go For Green

SGE Acres Limited – Marshall Macklin Monaghan Limited – Go For Green

Objective: Develop a Connected Region-Wide Active Transportation

A continuous network must be created that overcomes barriers and creates

Objective: Develop Planning and Design Guidelines for Active

Objective: Review Active Transportation Promotion, Education