HomeMy WebLinkAboutPSD-033-09Claringto~
Leading the Way
REPORT
PLANNING SERVICES
Meeting: GENERAL PURPOSE AND ADMINISTRATION COMMITTEE c~ C
Date: Monday, March 30, 2009 ttes~)k~Dc~~1i~t"~3 Iro l
Report #: PSD-033-09 File #: PLN 23.5.14
By-law #:
Subject: HIGHWAY 407 EAST ENVIRONMENTAL ASSESSMENT
MUNICIPALITY OF CLARINGTON COMMENTS ON THE PRELIMINARY DESIGN
PLANS FOR THE TECHNICALLY PREFERRED ROUTE
RECOMMENDATIONS:
It is respectfully recommended that the General Purpose and Administration Committee recommend to
Council the following:
1. .THAT Report PSD-033-09 be received;
2. THAT Report PSD-033-09 be APPROVED as the Municipality of Clarington's comments on the
Preliminary Design Plans for the Highway 407 East Technically Preferred Route;
3. THAT the Ministry of Transportation be requested:
a) To include the construction of Holt Road between Taunton Road (Regional Road 4) and
Concession Road 6 to a year round standard as part of the Highway 407-related works;
b) To construct the Holt Road overpass as part of the initial Highway 407 works to maintain
access to agricultural fields,
c) To construct afull-movement interchange at Liberty Street and the 407 Mainline;
d) To incorporate into the EA a 4 lane cross-section for the Taunton Road overpass over
the East Durham Link and cost-share the construction costs for the additional 2 lanes
with the Region of Durham;
e) To improve a portion of Washington Road north of Taunton Road to a seasonal standard
to allow access to agricultural fields south of the 407 Mainline;
f) To provide a sidewalk and/or bicycle lane on Solina Road south of Solina to connect to
the future transitway south of the 407 Mainline;
g) To provide page-wire (farm) fencing, rather than chain-link fencing, along the rural
portions of the highway corridor in keeping with the rural character of the area;
REPORT NO.: PSD-033-09
PAGE 2
h) To acquire sufficient land to provide cul-de-sacs at the end of all roads terminated by the
407, and to transfer said lands to the Municipality of Clarington; and
i) To prepare preliminary designs for the stormwater pond and Courtice Road interchange
at the Clarington Energy Park that will be an enhancement to the business Park with
appropriate gateway treatments and quality landscaping features.
4. THAT the Ministry of Transportation be advised that the Municipality of Clarington supports the
creation of a working group to deal with the issue of remnant parcels outside the scope of the
Environmental Assessment, and that this be a specific recommendation in the EA Report
submitted to the Ministry of the Environment;
5. THAT the Region of Durham be requested:
a) To commence an Environmental Assessment and allocate funding for the construction of
the Courtice Road/Enfield Road (Regional Road 34) re-alignment so that the re-aligned
road is in place by the time the Highway 407 East Mainline is operational;
b) To agree to both the transfer of the Darlington/Clarke Townline Road north of Regional
Road 4 to the Region's jurisdiction and its improvement to a Type 'S' arterial standard so
that the improved road is in place by the time the new 407 interchange on this road is
operational;
c) To contribute funding to the Highway 407 project to construct a 4 lane cross-section for
the future East Durham Link grade separation at Taunton Road and thereby avoiding
future costly reconstruction costs.
6. THAT the Clarington Highway 407 Community Advisory Committee, the Clarington Agricultural
Advisory Committee, and the Clarington Heritage Committee be THANKED for their input and
assistance;
7 . THAT a copy of this report and Council's decision be forwarded to the Ministry of
Transportation, the Regional Municipality of Durham, and all area municipalities in Durham
Region; and
8. THAT all interested parties listed in this report and any delegations be advised of Council's
decision.
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REPORT NO.: PSD-033-09
PAGE 3
Submitted by:
David . Crome, MCIP, RPP
Director of Planning Services
Reviewed bYO ~ ...::.:~
Franklin Wu
Chief Administrative Officer
JAS/LSIDJC/AC/df
24 March 2009
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Reviewed by: ,-):~?/~7,~~.-
A. S. Cannella
Director of Engineering Services
CORPORATION OF THE MUNICIPALITY OF CLARINGTON
40 TEMPERANCE STREET, BOWMANVILLE, ONTARIO L 1C 3A6 T (905)623-3379 F (905)623-0830
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REPORT NO.: PsD-033-09
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1.0 BACKGROUND AND PURPOSE OF REPORT
1.1 The Technically Preferred Route (TPR) for the Highway 407 Mainline, including the
West Durham and East Durham Links, was presented at Public Information Centres in
June 2008. Council submitted its comments on the TPR through its consideration of
Report PSD-110-08 (November 3,2008 GPA meeting).
1.2 The Ministry of Transportation (MTO) responded to Clarington's comments on the TPR
by letter dated January 6, 2009. Attachment 2 to this Report summarizes MTO's
responses to the issues identified in Report PSD-110-08, and staff's comments. Those
issues that have been resolved to staff's satisfaction and are not discussed in the main
body of this report include:
· Access to the Orono Hunt and Fish Club
· Interchange configuration at Enfield Road
· Potential future extension of Pebblestone Road
· Access for Emergency Vehicles
· Emergency Closure and Detour Plan
· Compensation for Farm Business Losses During Appraisal
· Need for Co-ordinated Phasing/Staging Plan During Construction
1.3 Over the past several months, the 407 Project Team has been undertaking preliminary
design work and meeting with various stakeholders, including Clarington staff, to further
refine the TPR and the location and sizing of supporting infrastructure. The Project
Team has also undertaken additional analysis to determine potential impacts and
proposed mitigation measures and strategies.
1.4 The Preliminary Design Plans for Highway 407 were presented at the last round of
Public Information Centres which were held in late January/early February 2009.
Information on the proposed Community Value Plan for the Highway 407 corridor was
also presented at the Information Centres. The 407 Project Team has requested that
comments be submitted by Monday March 23, 2009; however, the Project Team has
been unable to present to Clarington Council until March 23, 2009.
1.5 The purpose of this report is to provide the Municipality of Clarington's comments on the
Preliminary Design Plan and the proposed Community Value Plan for the 407
Technically Preferred Route. These comments include both new issues and additional
comments on issues previously identified. Comments are indicated in bold italics. In
preparing this report, comments from the Clarington Highway 407 Community Advisory
Committee, the Clarington Agricultural Advisory Committee, and the Clarington Heritage
Committee were also considered.
1.6 Staff has provided a copy of this report to the Project Team as the Municipality's
preliminary comments, subject to Council approval, in order to meet the March 23, 2009
deadline.
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REPORT NO.: PsD-033-09
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2.0 CLARINGTON ENERGY PARK
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Figure 1: Proposed Highway 401/East Durham Link Configuration
2.1 South Service Road and EnerQV Park Drive
2.1.1 Currently the South Service Road runs adjacent and parallel to the 401. The freeway to
freeway (401/407) interchange and the Courtice Road interchange impinge on the
limited acreage of the Energy Park.
2.1.2 The realignment of South Service Road in whole or part is the topic of ongoing
discussions between staff and MTO. Options are available to mitigate the loss of
developable lands in the Energy Park providing that satisfactory arrangements
can be made for the short, medium and long term alignment of South Service
Road. Ultimately Energy Park Drive will assume the function of the South Service
Road and should be shown as such in the EA documents. The section of Energy
Drive near Solina Road needs to be shown as the Province's responsibility under
the EA to replace South Service Road.
2.2 Storm water ManaQement
2.2.1 MTO has depicted the southeast quadrant of Courtice Road and South Service Road as
a "potential site for stormwater management pond". This site is located within lands
currently designated Prestige Employment Node in the Clarington Energy Business
Park Secondary Plan.
2.2.2 The proposed location of the storm water management pond is compatible with
the recommendations of the recently completed Master Drainage Plan. The storm
water management pond will remove developable lands so it needs to incorporate
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REPORT NO.: PsD-033-09
PAGE 6
an attractive entrance feature to the Business Park visible from Hwy 401 and
traffic entering from the Courtice Road interchange.
3.0 LOCAL AND REGIONAL ROAD NETWORK
3.1 Holt Road
3.1.1 The construction of the East Durham Link will result in a 2 km segment of Rundle Road
being lost. As a result, Rundle Road will become discontinuous between Taunton Road
and the Sixth Concession Road. Rundle Road will terminate at Taunton Road, while
that section north of the 407 will be truncated. Both northbound and southbound traffic
on Rundle Road will have to detour either onto Solina Road through the hamlet of
Solina (800 m to the west), or onto Old Scugog Road through the hamlet of Hampton
(2.5 km to the east).
3.1.2 Holt Road, which lies 800 m to the east of Rundle Road, is built to a year-round
standard between the South Service Road and the Seventh Concession Road, except
for that section between Taunton Road and the Sixth Concession.
3.1.3 Report PSD-11 0-08 included a specific
recommendation to advise MTO that it is the
Municipality's position that Holt Road
between Taunton Road and the Sixth
Concession Road should be improved to
year-round municipal road standards as part
of the 407 works to replace Rundle Road.
MTO responded in their January 6, 2009
letter that the 407 project team will not be
seeking EA approval to carry out
improvements to Holt Road, and that such
improvements, if justified, will be
Clarington's responsibility. However, they
have committed to constructing an overpass
for Holt Road at the 407 Mainline at such
time as Holt Road is improved.
Figure 2: Holt Road Reconstruction
3.1.4 The discontinuation of Rundle Road north of Taunton Road represents the loss
of an important north-south connection within the Municipality's road network,
and will create additional traffic impacts on Solina and Hampton. Given the loss
of this important connection, the request to MTO to replace the lost section of
Rundle Road with an approximately equivalent section on Holt Road is not
unreasonable.
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REPORT NO.: PsD-033-09
PAGE 7
3.1.5 The reconstruction of the unimproved section of Holt Road to a year-round
standard would effectively mitigate the impact on the Municipality's road network
and the two hamlets created by the discontinuation of Rundle Road. The
Municipality's consultant has estimated that the cost to improve Holt Road would
be approximately $1.57 Million.
3.1.6 It continues to be the Municipality's position that the reconstruction of Holt Road
to a full municipal standard between Taunton Road and the Sixth Concession
should be included in the EA documentation for the 407 East as a project-related
work.
3.1.7 This unimproved section of Holt Road is used by farmers to access a number of
agricultural fields. It would be preferable from a traffic safety perspective for
farmers to use Concession Road 6 rather than Taunton Road to access these
fields. However, this will require that the Holt Road overpass be constructed as
part of the initial 407 works so that the farms south of the 407 can be accessed
from the north.
3.2 Taunton Road
3.2.1 The Preliminary Design Plans indicate that a two-lane cross-section (one lane in each
direction) has been proposed for Taunton Road where it will cross over the East
Durham Link. The widening of Taunton Road through Clarington has not been included
in the Region's Five Year Capital Budget. As a result, MTO will not take responsibility
for the cost of the additional 2 lanes on the overpass.
3.2.2 Regardless of the responsibility for the costs of this structure, the 4 lane cross-section
for the overpass should be incorporated into the EA to avoid a subsequent EA approval
and to ensure that proper long term planning is undertaken.
3.2.3 The Region is requested to contribute funds to the 407 project to provide for the
construction of a four lane cross-section on Taunton Road over the East Durham
Link to avoid significant reconstruction costs and delays in the future when the
Region would have to undertake the widening of Taunton Road.
3.3 Liberty Street interchanoe
3.3.1 The EA recommended design includes interchanges at Regional Road 57 and at the
Darlington-Clarke Townline only. Liberty Street would be a simple grade separation
with no direct connection to Highway 407. There is also an interchange on the Durham
East Link at Highway 2, and a partial interchange at Taunton Road (access to and from
the south only). Traffic generated in the Bowmanville area will predominantly be served
by the Regional Road 57 and Highway 2 interchanges, as opposed to either the
Taunton Road partial interchange or the Darlington-Clarke Townline interchange,
3.3.2 The results of the transportation model undertaken for the EA were reviewed by the
Municipality's consultant to determine whether an interchange at Liberty Street would be
necessary or beneficial from a road capacity perspective. The model results suggest
that the current EA-recommended design would result in a concentration of traffic on the
approach routes to the two interchanges serving Bowmanville traffic, particularly the
Regional Road 57 interchange.
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REPORT NO.: PsD-033-09
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Detailed comments on the review of the transportation model are provided in
Attachment 3 to this report.
3.3.3 Based on a review of the Highway 407 transportation model and the future
planned land use and road network, the Municipality of Clarington requests MTO
to reconsider an interchange at Liberty Street. The interchange can be
accommodated while still maintaining appropriate interchange spacing, and is
important from a network connectivity perspective. It would help disperse
projected traffic volumes on the approach routes to Highway 407 in the
Bowmanville area, lead to lower traffic pressure on lower-order east-west
roadways, and alleviate high intersection turning movements along the Regional
Road 57 and Liberty Street corridors.
3.4 Hancock Road
3.4.1 The realignment of Hancock Road at Regional Road Highway 2 is currently proposed
by MTO as part of the work related to the East Durham Link. The realignment is meant
to accommodate a new ramp, the transitway and a transitway station. South of
Highway 2, the proposed realignment is achieved through the use of smooth horizontal
curves, thereby enabling relatively uninterrupted traffic flow. North of Highway 2, MTO
has proposed a T-intersection as a means of connecting the realigned section of
Hancock Road with the existing portion. The free flow of traffic will be inhibited with the
introduction of the 90 degree intersection.
Figure 3: Hancock Road: Proposed 90 degree intersection
3.4.2 The Municipality requests that the north leg of the realignment of Hancock Road
be redesigned with a smooth horizontal curve to facilitate traffic flow in this
location.
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REPORT NO.: PsD-033-09
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3.5 Middle Road and Other Road re-alionments
3.5.1 MTO proposes to construct the Middle Road overpass west of the current road
alignment location to reduce impacts to properties and natural features on the east side.
The old remnant portions of Middle Road will be required to be terminated north and
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unclear how MTO
plans to maintain
access to the
affected
properties.
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Figure 4: Middle Road: Proposed Re-Alignment
3.5.2 The Municipality's preference is to have Middle Road and other similar situations
connect directly to the realigned road and to have private driveways extended to
the realigned road. This would avoid the need to maintain old remnant sections
of the former road. MTO will be required to ensure that all private driveway
entrances are extended to the re-aligned road, and that these entrances are
properly designed and constructed to address any potential grade and sightline
issues.
3.5.3 The Municipality also requests that MTO give the same consideration to all local
roads that will be re-aligned because of the 407 or East Durham Link.
3.6 Road Terminations (Cul-de-Sacs)
3.6.1 A number of local roads are indicated as being truncated at the 407 and East Durham
Link. The Municipality's snow-clearing and road maintenance equipment, as well as
emergency vehicles, will need to be able to turn around at these locations.
3.6.2 MTO is requested to provide cul-de-sacs on roads to be truncated by the 407 or
the East Durham Link consistent with the requirements of the Municipality of.
Clarington to ensure proper access for both emergency services and
maintenance vehicles. All roads terminated with a cul-de-sac should have a
minimum radius of 15 metres to the edge of pavement. Sufficient property should
be acquired by the MTO and transferred to Clarington for these cul-de-sacs. At a
minimum, Clarington requires a radius of 24.5 metres to be provided to the
property limit.
3.7 Courtice Road/Enfield Road Connection
3.7.1 The construction of the interchange on Enfield Road (Regional Road 34) will result in
this road becoming a major access point to the 407. The resulting increase in traffic on
Enfield Road, Taunton Road and Trulls Road will have a significant negative effect on
the hamlet of Mitchells Corners. The Official Plan (Transportation Map B 1) indicates that
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REPORT NO.: PsD-033-09
PAGE 10
Regional Road 34 is intended to be made continuous and by-pass Mitchells Corners
through connection of Courtice Road and Enfield Road.
3.7.2 The construction of the Regional Road 34 connection will be important to
minimizing traffic congestion and road safety issues in Mitchells Corners
resulting from the 407/Enfield Road interchange. As such, the Region of Durham
is requested to commence an Environmental Assessment and to allocate funding
for the construction of the north-south by-pass connecting the two portions of
Regional Road 34 (Courtice and Enfield Roads) by the time the Highway 407
mailine is operational.
3.8 Darlinqton/Clarke Townline Road
3.8.1 Similarly, the construction of the interchange at the Darlington/Clarke Townline will
result in additional traffic using the section north of Taunton Road (Regional Road 4).
The entire length of this road is identified in the Official Plan as a Type B arterial.
Although the section of the road south of Taunton Road is currently under the Region's
jurisdiction (Regional Road 42), the section to the north that will connect to the 407
remains as a local road.
3.8.2 The Region of Durham is requested to agree to the transfer of that portion of the
Darlington/Clarke Townline Road north of Taunton Road to the Region's
ownership prior to the 407 interchange at this location coming into operation.
4.0 WIDTH OF OVERPASSES AND UNDERPASSES
4.1 AQricultural equipment
4.1.1 Report PSD-110-08 included a specific recommendation that grade separations be
constructed to include the requirements for the movement of agricultural equipment and
pedestrians. MTO indicated in their January 6, 2009 letter that the current design of
overpasses and underpasses provides sufficient width for the safe passage of farm
equipment.
4.1.2 Staff have confirmed that the design standards being proposed by MTO for over
and underpasses would be sufficient to accommodate a standard combine with
standard tires. A full 2.5 m shoulder on each side of the road is being proposed.
This together with a typical 3.5 m lane width will provide 6 m of width for each
lane/shoulder combination on overpasses and underpasses, which is consistent
with the standard width of two-lane rural collectors. This issue has been resolved
to staff's satisfaction.
4.2 Sidewalks and Bicycle lanes
4.2.1 MTO has advised that they will only provide bicycle lanes and sidewalks on
underpasses and overpasses where they currently exist or where they are planned in
capital forecasts.
4.2.2 Rural roads typically do not have either bicycle lanes or sidewalks, although the
shoulders are frequently used for both purposes. The necessary width at grade
separations for pedestrians and bicyclists will be provided through
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REPORT NO.: PsD-033-09
PAGE 11
accommodating the width of agricultural equipment as discussed in Section 4.1.
However, it would be appropriate for the construction of a sidewalk and/or bicycle
lane from Solina to the proposed future transitway facility to be included in the
EA as a 407-related works.
5.0 REMNANT PARCELS
5.1 The Municipality has consistently expressed a concern that Highway 407 and the East
Durham Link will create a number of remnant parcels in the rural area that could
potentially become residential building lots. The creation of these lots would be contrary
to the intent of the Provincial Greenbelt Plan and the Regional and local Official Plans.
MTO has indicated that it supports Clarington's objectives in this regard and has
suggested a Working Group be established. It is MTO's position that the issue of
remnant parcels is outside the scope of the EA.
5.2 The Municipality supports the approach of creating a Working Group outside of
the Environmental Assessment process to address the issue of remnant parcels.
The Working Group should be established as soon as possible after the
submission of the EA Report, with MTO or another provincial agency being
responsible for establishing and supporting its work. The Ministry of Municipal
Affairs, the Region of Durham, the affected area municipalities, and the
Conservation Authorities should be invited to participate. The establishment of
the working group should be a specific recommendation in the 407 EA Report.
6.0 IMPACTS DURING CONSTRUCTION
6.1 There is the potential for significant impact on area roads during the period of
construction that will affect residential and business traffic (including the agricultural
community), as well as emergency and maintenance vehicles. It is essential that
specific consultation be carried out by the proponent and contractor(s) with the
Municipality, area businesses and the agricultural community, both prior to and during
the period of construction, to understand their specific requirements. This will be
essential in helping mitigate impacts to. the agricultural community, particularly during
the planting and harvesting seasons.
6.2 MTO is requested to establish a liaison committee comprised of the proponent,
the contractor and representatives from the Municipality, the business and
agricultural community, and that this be included as a specific recommendation
in the 407 EA report.
7 .0 CULTURAL HERITAGE RESOURCES
7.1 The Municipality has previously recommended that MTO develop a comprehensive
strategy for the protection of cultural heritage resources in consultation with the Region
and the area municipalities, and that property owners and the relevant Municipality be
contacted to discuss specific mitigation measures for each affected heritage feature. In
response, MTO advised that more detailed work on cultural heritage resources would
be undertaken during preliminary design and that an Impact Assessment Report will be
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REPORT NO.: PsD-033-09
PAGE 12
prepared that will document the mitigation and/or compensation techniques to be
employed in order to reduce impacts.
7.2 The Impact Assessment Report provided to the Clarington Heritage Committee in
March 2009 identified those cultural heritage resources that will be either displaced or
disrupted by the 407. General mitigation strategies were developed based on the
degree of impact and the nature of the resource. Landscape screening is proposed for
those heritage resources that will be disrupted, while a Cultural Heritage Evaluation
Report (CHER) is recommended in those situations where built heritage resources are
to be displaced. None of the properties to be displaced by the 407 and the East
Durham Link in Clarington were identified by the Impact Assessment Reports for
relocation.
7.3 The Clarington Heritage Committee has identified 27 built heritage resources included
in the Impact Assessment Report that have been recorded in the Committee's inventory
of heritage buildings. Of particular interest are the following eight built heritage
resources that will be displaced by the 407:
5531 Bethesda Road
5681 Acres Road
7500 Hi hwa 115
5658 Bethesda Road
This structure should be relocated.
This structure should be relocated.
This structure should be relocated.
4825 Rundle Road
2064 Taunton Road
H743
H747
The barn should be relocated.
Relocation of structure not necessa
7.4 The Cultural Heritage Evaluation Reports to be prepared for a number of the
properties should also include floor plans of the building, the footprint of the
building on the lot, and photographic records of the exterior and interior of the
building and of the vista from the building.
7.5 The impact assessment reports do not include any information on the
compensation techniques to be used to reduce the impact on heritage resources,
nor do they indicate if the owners of the identified properties have been
contacted in regards to the mitigation measures proposed. This information
should be provided to the Clarington Heritage Committee to allow for a more
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REPORT NO.: PsD-033-09
PAGE 13
thorough review of the impact on the Municipality's built heritage resources, once
the negotiation with the owners is complete.
7.6 Attachment 4 provides the Municipality's comments on all of the heritage
resources identified by the impact assessment reports as being displaced or
disrupted by the 407 and the East Durham Link.
8.0 COMMUNITY VALUE PLAN
8.1 The Community Value Plan (CVP) process is intended to identify a range of measures
to mitigate the effects of Highway 407 that are sensitive to the cultural, social, historical
and environmental values of the communities in proximity to the Technically
Recommended Route. CVP measures are intended to be compatible with the natural
and built environments and aesthetically appropriate for the area, and will be
implemented within the 407 corridor. The Highway 407 Project Team should be
commended for undertaking the CVP process.
8.2 The 407 project team held a number of workshops in 2008 to identify key areas of
concern within communities affected by the highway corridor, and to discuss possible
strategies that will mitigate the impact of the highway while retaining or enhancing
community character. The proposed CVP was presented for comment at the last round
of Public Information Centres in late January 2009.
8.3 The CVP is intended to provide a range of potential mitigation and enhancement
measures that will be applicable at various locations throughout the 407 corridor.
Measures are grouped by themes, such as gateway locations, landscape screening,
local heritage, wildlife crossings, and wetland restoration. Comments on specific
aspects of the CVP are provided below.
8.4. Gateway SiQnaQe
Figure 5: Proposed gateway signage
Community signs should be located on the 407 corridor at the eastbound
entrance to Clarington, as well as at the hamlets of Solina, Hampton and Leskard.
The design of the signs and graphics should be distinct and accurately represent
the history and character of the community - for example, the old water-powered
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REPORT NO.: PsD-033-09
PAGE 14
mill in Hampton. Hamlet signs should also include a reference to the Municipality
of Clarington. Signs should be made of durable material to minimize maintenance
and to ensure that they remain attractive for a long time.
8.5 Bridoe Art
Figure 6: Proposed artwork on bridge structures and abutments
As with community signage, bridge artwork should be durable and accurately
reflect the history and character of nearby communities. For example, the grade
separation over Wilmot Creek should reflect the historical significance of the
fishery in this area.
8.6 Liohtino
Highway lighting located in proximity to homes and communities should be
visually screened to minimize the impact on residents. Where possible decorative
lighting (eg. heritage theme) should be installed. The Municipality has lighting
guidelines that recommend full cut-off, high efficiency luminaries.
8.7 Storm Water Manaoement Ponds
The many storm water
management ponds proposed
along the 407 corridor provide an
opportunity, with the use of
appropriate landscaping, to create
both visual assets and wildlife
habitat. However, when located
in proximity to communities,
fencing that is attractive and
compatible with the landscape
should be considered.
Figure 7: Storm water Management Ponds
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REPORT NO.: PsD-033-09
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8.8 Wildlife Habitat and Wetland Restoration
Opportunities to provide wildlife
habitat within the 407 corridor and on
remnant parcels should be maximized
to mitigate the impact of the highway
on the landscape, in particular
connectivity within the Natural
Heritage System (eg. woodlots on
remnant parcels).
Figure 8: Wetland Boardwalk
The creation of trails, wetland boardwalks ands other public areas would be an
asset to the community; however, access to highly sensitive areas should not be
encouraged. Information on the ownership and maintenance of the facilities has
not yet been provided by the 407 project team and should be discussed with the
local municipalities.
8.9 EnerQV Business Park
The East Durham Link will have a significant impact on the plans of the
Clarington Energy Business Park. There should be additional details provided for
this area including preliminary design plans for the stormwater pond which
incorporates special landscape features and gateway treatment at the
interchange.
9.0 CONCLUSIONS
9.1 Many aspects of life in Clarington will be affected by the construction and operation of
the 407 Mainline and East Link. The impacts will be both positive and negative for the
natural heritage systems, social and community fabric, agricultural operations and many
businesses. The Ministry of Transportation and its consultants, through the preliminary
design of the Technically Preferred Route, have provided specific recommendations to
address the impacts and mitigate any negative outcomes. In many cases MTO and the
consultants have gone beyond mitigation and provided for enhancement opportunities,
which is greatly appreciated.
9.2 Staff will continue to work with the Project Team and provide input on the Functional
Design Study.
Attachments:
Attachment 1 - Glossary of Terms
Attachment 2 - MTO Response to Report PSD-11 0-08
Attachment 3 - Comments on Liberty Street Interchange
Attachment 4 - Comments on Impacted Built Heritage Resources
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REPORT NO.: PsD-033-09
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List of interested parties to be advised of Council's decision:
Dan Remollino, P. Eng.
Doug Allingham, P. Eng.
John O'Toole, M.P.P.
Abe Afana
Ron Armstrong
Ann Ball
Jim Ballentine
Dorothy Barnett
Fred Biesenthal
Mark Bragg
Mark Canning
Jean-Maurice Cormier
Walenty & Maria Cyrganowicx
Yvonne Doorenspleet
Rolf & Tanya Fabricius
George Field
Linda Gasser
John Hammond
William J. Hasiuk
Mark Hawkins
Dave Horner
Karina Isert
Jennifer Knox
Jo-Anne McFarland
John and Barbara Montague
Denise Pickett
Libby Racansky
Hala Rawdah
David & Bev Rogers
Jim Slyfield
Bradford Soles
John Sturdy
John Waters
Ted Watson
820
GLOSSARY OF TERMS
CHER
Cultural Heritage Evaluation report
CVP
Community Value Plan
EA
Environmental Assessment
MTO
Ministry of Transportation
TPR
Technically Preferred Route
Attachment 1
To Report PSD-033-09
821
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MEMO
Attachment 3
To Report PSD-033-09
\\\11\ ~
\\\\\\\\\\\~
DILLON
CONSULTING
TO:
Leslie Benson
Faye Langmaid
Janice Szwarz
Municipality of Clarington
Municipality of Clarington
Municipality of Clarington
FROM:
Brent Hooton
Dillon Consulting
CC:
Paul Acquaah
Dillon Consulting
DATE:
March 24, 2009
SUBJECT: Highway 407 East Extension EA - Liberty Street Interchange
OUR FILE: 08-1219
This memo has been prepared to document the findings of our review as to the need and feasibility of an
interchange on the Highway 407 East Extension at Liberty Street, in the Municipality of Clarington.
As part of our analysis, we have reviewed documentation and data used in the Highway 407 EA, as
provided by AECOM. This documentation includes:
· Design drawings of the preferred alignment
· Road link volumes generated for the 2031 horizon year using the EMME/2 transportation model
(including Highway 407 mainline and interchange volumes and projected traffic on other arterial
and collector roads in Clarington)
· Lane capacity and number of lanes assumed in modeling exercise
· 2031 land use assumptions (population; number of employees)
The EA recommended design includes interchanges at Regional Road 57 (RR 57) and at the Darlington-
Clarke Townline only. Liberty Street would be a simple grade separation with no direct connection to
Highway 407. There is also an interchange on the Durham East Link at Highway 2, and a partial
interchange at Taunton Road (access to and from the south only). Traffic generated in the Bowmanville
area will predominantly be served by the RR 57 and Highway 2 interchanges, as opposed to either the
Taunton Road partial interchange or the Darlington-Clarke Townline interchange. The Taunton Road
partial interchange only serves traffic bound to/from Highway 401, and Bowmanville traffic has other,
more direct routes to access Highway 401. The Darlington-Clark Townline interchange would be too
indirect to serve Bowmanville traffic in the predominant direction (i.e., traffic bound to/from the west).
Volume and Capacity Considerations
Major Approach Routes
The results of the transportation model undertaken for the EA were reviewed to determine whether an
interchange at Liberty Street would be necessary or beneficial from a road capacity perspective. The
model results suggest that the current EA-recommended design would result in a concentration of traffic
on the approach routes to the two interchanges serving Bowmanville traffic, particularly the RR 57
interchange.
235 Yorkland Boulevard, Suite 800, Toronto, Ontario, M2J 4Y8 - Phone (416) 229-4646 - Fax (416) 229-4692 828
Highway 407 East Extension EA - Liberty Street Interchange
March 24, 2009
Page 2
The 2031 horizon AM peak hour model projected significant traffic demand from the Bowmanville urban
area to westbound Highway 407:
· 1,025 trips via the RR 57 interchange; and
· 650 trips via the Highway 2 interchange on the East Link.
This traffic leads to capacity concerns on roads approaching those interchanges. Both RR 57 and
Highway 2 are modeled to be operating at or above capacity in the sections approaching Highway 407:
· RR 57 is projected to attract more than 1,050 vehicles (peak direction) on the section approaching
Highway 407, compared to a modeled capacity of 1,000 vehicles per direction. (As discussed
below, high volumes of turning traffic may have the effect of reducing the capacity of RR 57
below this level, which would further aggravate capacity issues.)
· Highway 2 is projected to attract 850 to 900 vehicles per hour per lane on the entire section from
the Bowmanville CBD to the East Link, compared to a modeled capacity of 900 vehicles per hour
per lane.
In addition, the loop on-ramp from RR 57 to Highway 407 is projected to operate at high volumes (more
than 1,000 vehicles per hour); the high volume of low-speed loop ramp traffic could lead to merging
issues on the mainline.
The EMME/2 transportation model is capacity constrained; when assigning traffic through the network, it
takes roadway capacity into account. It is possible that the actual demand approaching Highway 407 may
be higher, because the modeled demand is constrained by capacity limitations (i.e., both approach routes
are modeled to be at capacity, or at a planning LOS F).
Further, it is likely that demand on RR 57 would be higher, because the modeled volume does not appear
to include traffic generated by the proposed Highway 407 transitway. There is a station shown at RR 57,
with a park-and-ride lot. Although the number of spaces has not been specified, there is a large area (at
least 4.5 to 5.0 ha) allocated for parking, which would accommodate more than 1,000 spaces depending
on the ultimate configuration. If park-and-ride traffic is in addition to the modeled volumes, there is
potential for significantly higher traffic demands on RR 57.
It is noted that the model used in the EA traffic projections assumed that the Highway 407 extension
would be unto lIed. The province announced in January 2009 that, although the province would maintain
control over the extension, tolls would still be applied (although the rates were not specified). Depending
on the ultimate toll rates, the volumes modeled on the highway may be overstated to some extent, which
in turn could overstate traffic on the approach routes.
Other East-West Routes
The attached exhibits illustrate the population and employment forecasts applied in the Highway 407 EA
traffic model. Exhibit 1 illustrates the projected growth between 2006 and 2031; Exhibit 2 illustrates the
ultimate forecasted 2031 population and employment levels. These exhibits illustrate that access to
Highway 407 from Bowmanville is unbalanced, in that both of the two interchanges that would serve
Bowmanville traffic (i.e., RR 57; Highway 2) are located in the west end ofthe Bowmanville urban area.
Since most of the Bowmanville urban area is situated east ofRR 57 (particularly in the north), most 407-
bound traffic will need to travel west to RR 57. The EMME model indicates significant volumes on east-
west arterial and collector roads bound for RR 57, including Taunton Road, the 3rd and 4th concessions,
829
Highway 407 East Extension EA - Liberty Street Interchange
March 24, 2009
Page 3
and Longworth Avenue I Scugog Lane. Some of these roads are less suited for this type of regional
traffic due to geometric conditions, road classification, or roadside environment (e.g. residential areas).
These east-west volumes will also lead to higher turning movement demands at intersections that would
decrease the capacity of RR 57 and lead to poorer intersection operations. This in turn could lead to
increased infiltration through residential neighbourhoods as motorists seek alternate routes to RR 57.
Liberty Street is more centrally located within Bowmanville, and therefore has potential to intercept a
significant proportion of trips that otherwise would need to be concentrated on RR 57 and the approach
routes to RR 57. If an interchange is provided at Liberty Street, there will be less east-west traffic
pressure and consequently lower turning movement requirements at intersections along the RR 57 and
Liberty Street corridors.
Network Considerations I Interchange Spacing
The EA-recommended design results in an interchange spacing of approximately 6.5 km between the RR
57 and Darlington-Clarke Townline interchanges. A Liberty Street interchange would be located
approximately 2.5 km east of the RR 57 interchange and 4.0 km west of the Darlington-Clarke Townline
interchange.
The MTO's Geometric Design Standards for Ontario Highways (GDSOH) recommends that, "as a
general guide in rural areas, interchanges are normally spaced at between 3 km and 8 km." With an
interchange at Liberty Street, the interchange spacing would be slightly below this level. However, the
GDSOH also notes that "the precise location depends on the particular needs of the community," and that
"interchanges should be located at arterial roads recognized as major components in the road system,
having good continuity and a capability for expansion if required." Liberty Street is identified as a Type
B Arterial in the Clarington Official Plan in which it has been planned to connect to Highway 407. In
addition, Liberty Street is a Regional Road, and is the only north-south Regional Road not to be afforded
an interchange with the Highway 407 East Extension (with the exception of Ritson Road, where there are
conflicts with the Simcoe Street interchange 1.3 km to the west).
Summary
Based on our review of the current Highway 407 transportation model and the future planned land use
and road network, we recommend that the Municipality of Clarington ask MTO to reconsider an
interchange at Liberty Street. The interchange can be accommodated while still maintaining appropriate
interchange spacing, and is important from a network connectivity perspective. It would help disperse
projected traffic volumes on the approach routes to Highway 407 in the Bowmanville area, lead to lower
traffic pressure on lower-order east-west roadways, and alleviate high intersection turning movements
along the RR 57 and Liberty Street corridors.
As stated earlier, our recommendation for the provision of an interchange at Liberty Street is based on the
most current data provided to us by the Highway 407 EA team which does not take into account the
tolling scenario. Whether the interchange is warranted under a tolling scenario would be entirely
dependant upon an analysis of an updated transportation model based on the most probable tolling
scenario, which at this point is unknown. No further modeling is expected to be carried out by the MTO
prior to the filing of the ESR.
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