HomeMy WebLinkAboutPSD-027-11 Clarin n
Le�;ngtheWay REPORT
PLANNING SERVICES
Meeting: GENERAL PURPOSE AND ADMINISTRATION COMMITTEE
Date: March 21, 2011 Resolution #: 0190-9V3-II By-law #: NIA
Report#: PSD-027-11 File #s: PLN 23.2.7, PLN 23.2.5
Subject: GO EXTENSION TO BOWMANVILLE
ENVIRONMENTAL ASSESSMENT
RECOMMENDATIONS:
It is respectfully recommended that the General Purpose and Administration Committee
recommend to Council the following:
1. THAT Report PSD-027-11 be received;
2. THAT Council endorse the staff comments noted in Section 4.0 of this Report as the
Municipality's comments on the Oshawa to Bowmanville Rail Service Expansion and
Rail Maintenance Facility Environmental Assessment Study Report dated January
2011;
3. THAT the Municipality of Clarington support the recommendation of the Environmental
Assessment Report to extend the GO Train Service to Bowmanville, with the
understanding that the comments contained in this report will be satisfactorily
addressed prior to the conclusion of the EA approval process;
4. THAT the Municipality of Clarington request the Province and Metrolinx Board to move
forward with the implementation of expansion of the GO train service to Bowmanville as
soon as possible by completing the Transit Project Assessment Process, detailed
design and constructions with all necessary funding earmarked at an early stage in GO
Transit's Ten Year Capital Plan;
5. That staff be authorized to approach GO/Metrolinx to negotiate a cost sharing
agreement for the Green Road grade separation; and
6. THAT all interested parties listed in Report PSD-027-11 and any delegations be advised
of Council's decision.
CORPORATION OF THE MUNICIPALITY OF CLARINGTON
40 TEMPERANCE STREET, BOWMANVILLE, ONTARIO L1C 3A6 T(905)623-3379 F (905)623-0830
REPORT NO.: PSD-027-11 PAGE 2
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Submitted by: Reviewed by:
Davi,84. Crome, MCIP, RPP lin Wu,
Director, Planning Services Chief Administrative Officer
COS/DJ/sn/df/ah
16 March 2011
REPORT NO.: PSD-027-11 PAGE 3
1.0 PURPOSE
1.1 GO Transit (Metrolinx) has completed an Environmental Assessment (EA) and
Preliminary Design Study for the expansion of the GO train service from Oshawa
to Bowmanville, including a new rail maintenance facility in Whitby. The Study
was carried out in accordance with Ontario's Transit Project Assessment
Process. The study reviewed potential sites for new stations and train facilities,
options for connecting the CN Railway corridor with the CP Railway corridor, and
also identified improvements to the existing railway line. The Report
recommends the following improvements:
• Extended service for the Lakeshore East corridor between Oshawa and
Bowmanville along the CP Rail Line;
• Improved service with new layover facility in Clarington and maintenance
facility in Whitby; and
• Opportunity to add up to five potential new GO stations of which two would
be in Clarington.
The 30-day review period for the EA Project Report ended on February 28, 2011.
The Planning Services and Engineering Services Departments prepared
consolidated comments that were forwarded to the EA Project Leader of GO
Transit and AECOM, the Consultant. The purpose of this report is to provide
Council with the background to this project; with information regarding the
recommendations of the EA Report and request Council to endorse the
comments submitted by Staff as contained in Section 4.0 of this report.
2.0 BACKGROUND
2.1 Planning for GO Rail Service to Clarington
In December 1993, GO Transit completed an EA report titled "GO Train Service
Expansion Program-Oshawa West to Oshawa East Study". This study
considered expansion of the GO train service to the east side of Oshawa with a
proposed station in the vicinity of the Holiday Inn on Bloor Street near Grandview
Street. The EA also provided for a rail yard in Courtice for the storage and
maintenance of trains in off-peak hours.
The Municipality carried out a feasibility study titled Go Station Location Study.
This Study was completed in May 1994. The consultants for the Municipality
undertook a comparative analysis of different sites in Bowmanville along the CP
Rail corridor that would be suitable for a GO Station. The study determined that
the Martin Road West Site would be the preferred location. The study also looked
at an intermediate station in Courtice and recommended a location northwest of
the intersection of Courtice Road and the CPR corridor.
REPORT NO.: PSD-027-11 PAGE 4
2.2 Clarington Official Plan
The GO Station feasibility study in 1994 took place while the current Official Plan
for Clarington was being prepared. As a result, the GO location study
recommendations were included in the Official Plan. The Clarington Official Plan
as adopted in 1996 by the Municipality and approved by the Region of Durham
included the designations for two GO train stations, one in south Courtice and
one in the Bowmanville West Town Centre Area along the CP Rail line corridor.
These designations are also reflected in the Regional Official Plan. The locations
are in the Official Plan's Land Use map for Bowmanville and Transportation Map
for Courtice.
2.3 Acquisition of Land in Bowmanville by GO Transit
In 2004, the GO Board approved the purchase of 13.5 acres north and south of
the rail corridor in the Bowmanville West Town Centre area for the future GO
Station. In 2006, GO developed the northern part for a Park and Ride facility.
2.4 MoveOntario 2020 Program unveiled
Prior to the Provincial elections in June 2007, the Premier of Ontario unveiled the
program MoveOntario 2020 that would have the largest investment in public
transit in Canada. The Number 4 project outlined by the Premier in the
MoveOntario 2020 program is the GO Lakeshore East rail line extension from
Oshawa to Bowmanville.
In March of 2007, as part of the MoveOntario 2020, the Prime Minister and the
Premier of Ontario announced a new initiative, Public Transit Capital Trust 2008.
The program is designed to support the role public transit plays "in easing traffic
congestion in urban areas and contributing to cleaner air and lower greenhouse
gas emissions". In the announcement, both the Prime Minister and the Premier
indicated that one of the goals of this program would be to "accelerate the
extension of the GO Transit line from Lakeshore East to Bowmanville".
The Provincial government assigned the implementation of the MoveOntario
2020 program to the Greater Toronto Transportation Authority (GTTA) now
known as Metrolinx. On November 28, 2008, and in order to implement
MoveOntario 2020, the Metrolinx Board of Directors adopted the Regional
Transportation Plan (RTP), The Big Move: Transforming Transportation in
the Greater Toronto and Hamilton Area (GTHA). The Plan has two phases
one for the next 15 years and the second one with a longer time horizon of 25
years. The Oshawa-Bowmanville expansion is included within the 15 year plan.
In April 2008, the GO Board authorized a feasibility Study for the Oshawa East
Service Extension and New Rail Maintenance Facility. The study was to
consider extending the service from the existing Oshawa GO Station to
REPORT NO.: PSD-027-11 PAGE 5
Bowmanville by analyzing the options of either using the CPR or CN corridors.
The feasibility study concluded the CPR corridor to be the most suitable option to
extend rail services to Bowmanville.
2.5 Announcement of EA to extend GO train services to Bowmanville
On June 25th of 2008, the Provincial Minister of Transportation announced a new
six-month environmental assessment process to fast track transit projects. As
part of the announcement GO Transit stated that the first two projects to proceed
under the new rules would be GO Train service to Milton and the extension of
GO Train service from Oshawa to Bowmanville.
Following the project initiation in April 2009, the consultants, AECOM, held a Pre-
notice of Commencement meeting with the Municipality on August 12, 2009.
During 2009 and 2010, Public Open Houses and Public Information Centres
were advertised and held in Whitby, Oshawa, and Clarington. The
Environmental Assessment Study for the GO expansion to Bowmanville was
finalized early January 2011, and the Study has now concluded with a final public
consultation stage for comments that closed on February 28, 2011. The
discussion in Section 3 affects the comments submitted by staff at that time.
3.0 DISCUSSION
3.1 The Environmental Assessment Study recommends the expansion along the CP
line, two GO stations, and a layover facility at Rundle Road. The
recommendations from the report for Clarington are:
Peak Train Service to Clarington
Between the Ritson Road GO Station site and the Martin Road GO Station site,
one (1) additional track will be built to meet the condition of having the two (2)
train services separated and not in conflict with each other. To achieve this and
to protect this plan, tracks will generally be built to the south side of the existing
CPR line. A new station will be established at Courtice Road and a terminus
station in Bowmanville at the intersection of Regional Road 57 and the CPR
corridor. This terminus station and rail track back to the east side of the Highway
2 Bridge (King Street) will be the end of additional track building for this peak
period of service. In the future as full service plans are warranted, a second new
track will be required from the Ritson Road GO Station site to the Martin Road
GO Station site to accommodate the extension of full daily train service to
Bowmanville.
The extension of GO Train Service to Clarington also requires the establishment
of a train layover site near the end of service, to park trains overnight and
facilitate minor maintenance. This project has selected a site adjacent to the rail
corridor between Solina Road and Rundle Road. It is planned that this site will
REPORT NO.: PSD-027-11 PAGE 6
start service with rail infrastructure to store four (4) or five (5) trains overnight to
meet the initial peak period service plan to start service from the Martin Road GO
Station site. To provide enough track capacity to move trains between this
layover site and the end of service terminus at Bowmanville at the same time as
revenue train service runs between Bowmanville and Union Station, a service
track will need to be provided to link these two (2) sites. This will add a second
new track between these two (2).
Courtice Road GO Station Site (Darlington GO Station):
This station site, referred to as Darlington GO Station, is located between the
main downtown areas of Oshawa and Bowmanville in an area that is planned to
develop over the next few years and with direct access to Highway 401. As
many riders of the GO system come from communities farther to the east, this
station will provide them with a convenient and direct access point to the system.
It will enable riders from the east to utilize Highway 401 to this point and give
them direct access to this station location and entrance to the GO train system.
The main station facilities will be located to the north of the CPR corridor. This
will include a station building and parking facilities along with a bus access point
and "Kiss and Ride" facilities. At track side GO Transit will install a pedestrian
tunnel to access a south side Station platform. Parking facilities include 1,100
spaces with opportunities for future parking expansion to the west of the
proposed parking lot. Initially this will be a side platform but as train service
grows and full service develops this platform will expand into an island platform
to service two way train traffic along the south side of the corridor.
Darlington (Courtice)train station—preliminary site plan
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Martin Road GO Station Site (Bowmanville GO Station)
At present this station consists of a GO bus terminal and an 80 car parking lot on
the north side of the rail corridor, which services GO ridership and provides GO
patrons with bus service to the GO train system at the present terminus in
Oshawa. With the extension of train service this station will be redeveloped into
both a train and transit hub for both the GO System and local transit. It will be
referred to as the Bowmanville GO Station. On the north side of the corridor, GO
Transit will redevelop the land to accommodate a bus terminal along with a "Kiss
and Ride" facility and 80 parking spaces. This bus terminal will enable municipal
and regional transit to access the train station and interchange patrons at the
facility. On the south side of the rail corridor GO Transit will develop a large
parking facility along with "Kiss and Ride" features and expansion capability as
the demand at this terminus station grows. This station will initially provide a
south side island platform between the mainline and the south service track. As
train service grows into full service the south service track will be upgraded into a
south mainline. GO Transit will work with the community to ensure that general
pedestrian crossing of the rail corridor will be directed safely across its grade
separated pedestrian crossing. Within the southern portion of the station site,
there will be an additional 770 parking spaces.
Bowmanville GO station — preliminary site plan
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Rundle Road Layover Facility Site
The train layover site recommended for this extension of train service sits
adjacent to the CPR corridor along the south side between Rundle Road and
Solina Road. It will initially be developed to provide for five (5) 12-car GO Trains
to be parked. Each train will be stored in the train yard and plugged into electrical
service and the engines will be turned off when the train is in storage. Each
morning the trains will be started up and warmed prior to being put into service.
From this location these trains will normally move east to the Bowmanville GO
Station site to begin revenue service into Union Station. At the end of the day
trains will return patrons to Bowmanville in revenue service and upon completion
of this service, move as equipment service back to the Rundle Road Layover
Facility. During the initial service plan these trains will be given light maintenance
at this site. The cleaning up of garbage, some cleaning of the interior of the train
as needed, minor parts replacement etc. will be handled at this site. Train fuelling
will also be provided at this facility.
As train service expands, this facility will fill out to its full plan, with a train yard
capable of handling eight (8) trains for storage. In addition, a Progressive
Maintenance (PM) building capable of housing two (2) 12-car trains and engine
side by side inside may be added. This PM Bay will provide the ability to
undertake regulatory inspections of each train as required. As a result of these
regulatory inspections some minor maintenance, fuelling and repair will be
undertaken. This will also enable other quick repairs to be undertaken during the
same inspection period. As GO Transit train service grows throughout the
system, it will become increasingly difficult to cycle equipment to major
maintenance facilities for the required regulatory inspections. Hence GO Transit
has planned that all of its layover facilities will have the capability to undertake
these inspections on the required frequencies and follow up with the immediate
light repairs required. Should more demanding and time consuming repairs be
required then the trains will be moved to the main repair shops for this work to be
undertaken.
Rundle Road train layover site— preliminary site plan
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REPORT NO.: PSD-027-11 PAGE 9
Next Steps
The information of GO Transit provided in their website for this project outlines
the next steps in the Environmental Assessment review process as follows:
Following the 30-day public review period for the Environmental Project Report
that ended on February 28, the Minister of the Environment will have 35 days to
consider whether the transit project may have a negative impact on a matter of
provincial importance that relates to the natural environment or has cultural
heritage value or interest; or, a constitutionally protected Aboriginal or treaty
right.
Before the Minister acts, the Minister is required to consider any objections that
may have been submitted during the 30-day review period. Whether there is an
objection or not, if the Minister acts within the 35-day period, one of three notices
may be issued to the proponent:
• A notice to proceed with the transit project as planned in its Environmental
Project Report;
• A notice that requires the proponent to take further steps, which may
include further study or consultation; or,
• A notice allowing the proponent to proceed with the transit project subject
to conditions.
If the Minister does not act within the 35-day period, the transit project may
proceed as planned in the proponent's Environmental Project Report. However, it
is expected that the Minister will exercise his/her discretion to act and will give a
notice to a proponent for each transit project that follows the transit project
assessment process.
Following the Minister's review, the Province of Ontario will determine support for
the project and timelines for expansion.
4.0 STAFF COMMENTS
4.1 Financial costs
The EA Project Report does not address the financial aspect of this project. All
elements of the rail expansion including land acquisition, design, construction
and improvements/reconstruction of existing infrastructure will be made at
Metrolinx's/Go Transit's expense.
REPORT NO.: PSD-027-11 PAGE 10
4.2 Level Crossings
The report does not address improvements to level crossings on local roads of
which there are seven in Clarington. Improvements will undoubtedly be required
at these crossings which must be appropriate for the increased exposure in each
case.
4.3 Green Road/CPR Grade Separation and Reconstruction of Green Road
Table 4.4- Proposed Structural Improvements within the Project Limits identifies
the Green Rd. Trestle/CPR Crossing and states "others to rebuild to protect for
four tracks (1 north, 2 south of existing)" and further notes, under Structural
Works Required, "none". The Municipality was prepared to make improvements
to the Green Road/CPR grade separation to provide for the reconstruction of
Green Rd. through this structure. Design work was well advanced with input and
concurrence from CPR. This project was put on hold with the announcement of
the GO Rail Expansion. Any works, including land acquisition, design and
construction, required to accommodate additional tracks will be constructed by
and at the expense of GO Transit in conjunction with accommodating a
reconstructed Green Road. Further discussion among the Municipality, Metrolinx
and CPR regarding cost sharing will be required.
4.4 Access to the proposed Courtice Station
Section 4.4.2.3 outlines the Traffic Impacts at the proposed Courtice Road
station (in the absence of a finalized Traffic Impact Study) and states that "the
access road [west off Courtice Road] to the proposed site will fail from a traffic
perspective", and signalization is recommended. The section further states that
"it is further noted that access may be additionally improved once the future
ROW immediately north of the proposed station site is constructed." The
Municipality has consistently commented to GO Transit and their consultant that
the east/west collector depicted in the Clarington Official Plan must be
constructed by GO Transit at their expense. As stated by the proponent's
consultant, ingress, egress and traffic movement within the site will be
significantly improved by the construction of the east/west collector road. There
may be an opportunity to cost share with adjacent land owners, but that is the
prerogative of GO Transit to pursue that option.
4.5 Traffic Impact Studies
Clarington commented on the Traffic Impact Studies for each of the Courtice GO
Station and the Bowmanville GO Station. There were a significant number of
comments on each of these reports, and fundamental issues were identified. To
date the consultant and/or GO have not responded to these issues. Table E4-3:
Summary of GO Transit Service Expansion Potential Impacts and Mitigation
Measures (and later in the main report) states, under Traffic Impacts, "based on
REPORT NO.: PSD-027-11 PAGE 11
the completed traffic studies, several recommendations have been put forward ...
such recommendations will be further developed during the detail design stage."
It is staff's view that traffic impacts should be completely analysed and resolved
prior to the detail design stage.
Further, the Traffic Impact Study should be expanded to include the proposed
train lay-over site at Rundle Rd. as well as an assessment of the condition of the
roads leading to that facility.
4.6 Proposed Bowmanville GO station site
The future station site is situated partly inside and adjacent to the Bowmanville
West Town Centre. The Bowmanville West Town Centre Secondary Plan
encourages the development of the centre as a transit node by encouraging high
quality streetscaping, provision of walkways and linkages, and the development
of structured parking facilities in partnership with private land owners.
Furthermore, the site is located within the Built Boundary established through the
Growth Plan which requires more compact development. The development of a
diverse mix of land uses and land use patterns through high quality urban and
energy-efficient design is more desirable than what is depicted on the concept
layout plans contained in the study. Details of how these Growth Plan objectives
will be impacted and potentially addressed should be contained in the final
report.
4.7 Growth Plan Conformity/Employment Area Density
The proposed GO Station site in Courtice (with 1100 parking spaces at grade)
and the layover site on Rundle Road remove a considerable amount of lands
designated for employment uses. In addition, the Bowmanville GO Station site
provides for 850 parking spaces at grade. We understand that through the
process of implementation, MetroLinx will work with the Municipality and the
Province to ensure that the proposed GO Station sites develop over time to the
mix of uses and densities contemplated in the Province's Growth Plan. There
should be some attempt to address the gap between Provincial Policy and the
proposed infrastructure plan.
4.8 Highway 407 East Link
Table 4.4 does not identify any grade separation works to accommodate the
future Highway 407 east link.
4.9 Project Phasing
Given the magnitude of the project there is concern that it will be completed in
phases and chronologically from west to east. Certain time lapses between
phases would necessarily have impacts particularly on movement of people, the
REPORT NO.: PSD-027-11 PAGE 12
road system, infrastructure, parking and associated budgetary decisions.
Although an EA is not a project implementation document it is important to avoid
a situation similar to the turmoil associated with the decision to stage the 407
East expansion and to address the implications of a possible staging/phasing of
this project. Appropriate funds need to be secured for the entire project.
4.10 Noise Attenuation of Rundle Road Layover Facility
The Rundle Road layover facility is located in an industrial area near Highway
401. Noise studies indicate that there would be a very significant noise impact at
this location and proposed 5m berms. The Municipality would be very concerned
to ensure that this is appropriately addressed in the detailed design phase.
4.11 Noise Attenuation in Residential Areas
Clarington will be very concerned to see that noise and vibration impacts are
appropriately mitigated, particularly through the area around the Bowmanville GO
Rail Station.
4.12 Electrification of GO Rail Line
The report identifies air quality impacts, particularly around station sites, due to
the increased motor vehicle and bus trips and the diesel powered trains. It also
indicates that ambient air concentrations make up the greater share. Some of
the predicted cumulative risks exceeded the benchmarks but in comparison with
not building the rail extension, the risks would be "very small". Air quality issues
are a concern of the Municipality. The early use of the Tier 4 diesel locomotives
and preferably the electrification of the rail line should be pursued earlier.
4.13 Planning Approvals
Since the station sites and layover site on Rundle Road are regarded as public
uses, GO Transit is not required to rezone the respective properties to permit the
proposed developments. However GO Rail will be required to obtain site plan
approval from the Municipality and to satisfy the Municipality with respect to
possible impacts related to the environment, surrounding land uses and road
system and other concerns as determined by the Municipality.
4.14 Municipality's Secondary Plan Study for Courtice Employment Area
The Municipality is undertaking a Secondary Plan Study for the Courtice
Employment Area and will address in more detail the anticipated inter-
relationship between the GO Rail site and the surrounding land uses.
REPORT NO.: PSD-027-11 PAGE 13
4.15 Other detail/technical comments
Other technical comments/remarks on the EA report i.e. directional errors and
minor omissions have already been forwarded to the consultant and GO Transit.
5.0 CONCLUSION
5.1 The EA report recommendations implement Council's past position of using the
CP line to bring the GO Train service into the Bowmanville West Town Centre.
In addition, the EA report reaffirms the location of the GO stations in Courtice and
Bowmanville as adopted by Council in the Clarington Official Plan.
5.2 The Municipality will be under pressure to move on capital expenditures sooner
than the GO expansion to Bowmanville; one example would be the Green Road
overpass required to alleviate the traffic resulting from the additional commercial
development in the Bowmanville West Town Centre (e.g. Wal-Mart, new
Canadian Tire). To do this, the Municipality would like to start negotiations with
GO/Metrolinx to identify these capital projects and negotiate a contribution and/or
cost sharing agreement when necessary.
5.3 It is clear from the above-mentioned comments in Section 4.0 that that there are
a number of outstanding issues that were identified and need to be addressed
prior to the finalization of this phase of the project, before the commencement of
the detailed design stage.
5.4 Staff is looking forward to working with the GO/Metrolinx to ensure that these
matters are satisfactorily addressed and to partake in the implementation
phases. Council will be apprised as the project progresses.
Staff Contact: Dean Jacobs
Attachments:
Attachment 1: Executive Summary: Oshawa to Bowmanville Rail Service Expansion
and Rail Maintenance Facility Environmental Assessment Study
Report dated January 2011
Interested parties to be notified of Council's decision:
Andreaz Grammenz, EA Project Leader, GO Transit
Alan MacDougall, Senior Railway Project Manager, AECOM
Durham Region, Transportation Infrastructure
Durham Region, Planning
Attachment 1
To Report PSD-027-11
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