HomeMy WebLinkAboutPD-246-89DN: 407
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TOWN OF NEWCASTLE
REPORT File # / yz
Res.
By -Law #
NOTING: General Purpose and Administration Committee
DATE: Monday, October 2, 1989
REPORT #: PD- 246 -89 FILE #: PLN 23.5.2
SUBJECT: HIGHWAY 407 OVERVIEW STUDY
RECOMMENDATIONS:
It is respectfully recommended that the General Purpose and Administration
Committee recommend to Council the following:
1. THAT Report PD- 246 -89 be received and endorsed as the Town's comments on
the Highway 407 Overview Study (Highway 48 to Highway 35/115); and
2. THAT a copy of Report PD- 24 6- 8Sbe forwarded to the Region of Durham and
Ministry of Transportation, Transportation Planning Office.
1. BACKGROUND
1.1 On June 29, 1989 the Town of Newcastle received a copy of a study
undertaken by the Ministry of Transportation, entitled Highway 407
Overview Study (Highway 48 to Highway 35/115). This report was
forwarded to the Town with a request for comments.
With a view to providing Council with a summary of this study, Mr. Dave
Garner, (Head of the Transportation Planning Office of the Ministry of
Transportation) was invited to address Council directly on September
11, 1989. This report is prepared as the Town's response to the
Ministry on the Highway 407 Overview Study.
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REPORT NO.: PD- 246 -89
1.2.1 Planning studies conducted in the 1950's and 1960's indicated a need
for a Highway 407, an east -west freeway north of Metropolitan Toronto,
running between Highway 401 in Milton and Highways 35/115, as shown in
Figure 1. The western section of Highway 407 in Peel Region and the
section that passes north of Metropolitan Toronto have either been
partially implemented or are protected as part of the Parkway Belt West
Plan.
1.2.2 The overall goal of the Study was to determine the rationale and need
for Highway 407 (Between Highway 48 and Highways 35/115) and additional
north -south connections (between Highways 401 and 407), identify the
timing of the need, and develop an implementation strategy. Since the
need for Highway 407 is being considered in the context of the total
transportation system, municipal road needs and transit needs were
reviewed at the same time.
The following specific issues related to the provincial highway system
were addressed in the Study:
i Need and justification for Highway 407 from Highway 48 to Highway
35/115
ii Need and justification for north -south links between Highway 407 and
Highway 401 in the vicinity of Durham RR #23 and east of Oshawa.
iii The ultimate number of lanes to be protected on each major
provincial facility.
iv Need and justification for extending the proposed East Metro Parkway
(EMP) north of Highway 407 to act as a Markham bypass.
v Tradeoffs that may be desirable by improving municipal roads and
developing an arterial grid system to offset or delay the
reconstruction of provincial facilities.
1.3 Study Approach
1.3.1 The Study of the need and justification of new transportation links was
based on: q c,
...3
The analysis of transportation deficiencies was based on three basic
development scenarios:
I Existing, based on existing (1986) population and employment.
II At Official Plan maturity, two scenarios were analyzed:
(i) The Low Scenario in which population and employment are based
on the York- Durham servicing agreement which has set limits on
the maximum population that can theoretically be served by the
York- Durham sewer in York and Durham Regions.
(ii) The High Scenario when the lands presently designated for
development by the current Durham Region Official Plan and York
Region Draft Official Plan are fully developed.
III Beyond the Maturity of the Official Plans, considering the
reasonable potential development that could occur beyond the Regional
Official Plans.
1.3.2 In assessing the need for expansion of the transportation
infrastructure, the Study analyzed how a transportation system in the
Study Area can:
1. Serve and support the future growth of the Study Area, as presently
planned.
2. Serve and support development of the Seaton Community.
3. Relieve existing traffic congestion.
4. Provide a bypass route around congestion in Metropolitan Toronto.
5. Serve commercial vehicle traffic.
6. Provide continuity with Highway 407 between York Region and Durham
Region.
7. Serve recreational traffic demands.
..4
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REPORT NO.: PD- 246 -89 PAGE 4
1.4.1.1 The Ministry of Transportation note that:
i the existing transportation system with committed or planned
improvements (by the Ministry of Transportation, York Region and
Durham Region) cannot handle existing travel demands, nor will it be
able to accommodate future travel demands at Official Plan maturity
or beyond;
ii an expanded public transit network with new and upgraded
inter - regional transit and local transit services cannot handle
future travel demands at Official Plan maturity or beyond, even with
committed transportation improvements; and that
iii an upgraded arterial network with new arterials, arterial
extensions, and widenings of existing arterials cannot handle travel
demands at Official Plan maturity or beyond, even with an improved
Public transit system.
Therefore, an expansion of the freeway network will be required along
with a major upgrading of the arterial road network and transit service
improvements to handle the travel demand associated with Official Plan
maturity or beyond.
1.4.2 Official Plan Maturity
1.4.2.1 To handle traffic demands associated with development at Official Plan
maturity for the Low scenario, transportation improvements will be
required in addition to those already committed, for the road network as
shown in Figure 2 and for the transit network, as shown in Figure 3.
1.4.2.2 For the High scenario at Official Plan maturity, Figure 4 illustrates
the road network improvements required. Compared with the
transportation improvements required for the Low scenario, the High
scenario will require further widening of arterial roads plus:
...5
REPORT NO.: PD- 246 -89 PAGE 5
• Extension of Highway 407 to Highway 35/115.
• Extension of the East Metro Parkway as a staged freeway between
Highway 407 and Major Mackenzie Drive.
• A north -south freeway along the Oshawa /Newcastle boundary (the
"Oshawa Link ") between Highways 401 and 407.
Figure 5 shows the transit network to be protected. Compared with the
Low scenario, the High scenario will require:
. Another transportation gateway in the Second Tier (Whitby - Oshawa
area) .
Improved capacity on inter - regional transit links.
1.4.3 Beyond Official Plan Maturity
1.4.3.1 The Ministry of Transportation's transportation model shows the network
cannot reasonably handle the travel demands beyond Official Plan
maturity, even with Highway 407, maximum reasonable arterial
improvements, and expanded inter - regional transit services given
currently accepted live -work relationships. Specifically, east -west
travel demands along Highway 401 and 407 corridors through Metro Toronto
and York Region will significantly exceed the maximum capacities of the
two corridors. Excessive travel demands can be attributed to the
following factors;
• The predicted large increase in employment (approximately 300,000
over today's level) in Metro Toronto, which will cause more commuting
from the adjoining Regions.
• The proportionally lower employment levels in York Region and Durham
Region compared with Metro Toronto, resulting in a greater
dependence on jobs within Metro Toronto for residents of York Region
and Durham Region.
People do not work in the same municipalities where they live: there
is a mismatch of type of housing and type of employment. This
results in increased interregional commuting and increased pressure
on the transportation system.
NW
REPORT NO.: PD- 246 -89 PAGE 6
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1.5 Planning for Beyond Official Plan Maturity
1.5.1 It is the opinion of the Ministry of Transportation that particularly
in the Highway 401 and 407 corridors through Metro Toronto, the
transportation network cannot reasonably handle the travel demand
beyond Official Plan maturity. The Ministry have assumed a higher
live -work relationship for the developing areas in Durham. Figure 6
illustrates the freeway network which would serve the travel demand in
the area cast of Metro.
1.5.2 This network indicates that Highway 407 be protected as a 10 -lane
freeway from the approved 10 lane ultimate system at Highway 48
easterly to the Oshawa Link, (near the Oshawa - Newcastle Boundary) and a
basic 8 lane freeway from there easterly to Highway 115 which has been
designed to accommodate an 8 -lane freeway at the intersection of
Highway 35/115.
1.5.3 The north /south connections from Highway 401 to Highway 407 will also
be protected to an ultimate 8-lane freeway. This protection is based
on similar existing conditions in Metro Toronto such as Highways 404,
427 and 410, all of which have all been protected for at least 8 -lane
capabilities. It is also reasonable to assume that, when significant
development occurs north of Highway 407, protection of extensions of
these corridors northerly should also be undertaken. The Ministry have
assumed that a high order transit line in the 407 corridor is also
protected and that local transit is also available to "feed" both the
GO line on the Lakeshore and the Highway 407 transit corridors. In
addition, the Ministry have assumed that the freeway system will be
adequately services by a network of major arterial roads spaced
approximately 2 kilometers apart.
1.5.4 Although the Ministry transportation model is not developed to a fine
enough level of detail to ascertain whether the Lakeshore GO Line
should be extended to Oshawa, the Ministry identified the need to
remove traffic from Highway 401 as much as possible and thus minimize
the vehicular traffic entering the congestion area. With this in mind,
it is recommended that transit service be provided to Oshawa with a
major transportation gateway at the illa! station,
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REPORT NO.: PD 46 M.
1.5.5 Similarly the Highway 407 corridor line should be protected as far east
as the Oshawa Link with a major transportation gateway being provided
at its terminal point.
1.6 Study Conclusions and Recommendations
1.6.1 The objective of this study was to identify transportation corridors
that should be protected. It is necessary to protect these corridors
now, since increasing pressures to develop will make the efforts of
protecting these corridors much more difficult in the future. The
Ministry's Study makes the following recommendations:
i Protection of the freeway network illustrated in Figure 6, by
carrying out the necessary route location and environmental studies.
ii Route location and environmental studies for the recommended
arterial road improvements.
iii Protection for the transit network shown in Figure 5.
iv Further investigation of the need for another east -west freeway
north of Highway 407, to resolve the significant potential capacity
deficiencies along the Highway 401 and 407 corridors in the
long -term. The corridor should be investigated in the context of
overall GTA transportation needs.
1.6.2 Considering the expected problems in handling future travel demands
beyond Official Plan maturity, the Ministry also recommended that
further investigation be carried out on:
i Employment projections for the GTA, with the objective of reducing
the dependence of residents of York Region and Durham Region on
employment opportunities in Metro Toronto.
ii The mix of residential housing and type of employment, with the
objective of encouraging a better match of housing types and type of
employment, to reduce commuting.
1.7 Highway 407 Route Alignment Study
1.7.1 Since the release of the Highway 407 Overview Study, the Ministry of
Transportation have obtained the consulting firm of Parker Consultants
to conduct the Highway 407 Route Alignment Study within the Town of
Newcastle as shown Figure 7. J 9 / U
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REPORT NO.: PD- 246 -89 PAGE 8
2. ANTICIPATED IMPACTS
2.1 The development of a freeway network, as per figure 6, is anticipated
to impact the Town of Newcastle in the following ways:
i. improved economic development opportunities
ii. increased demand for various forms of rural residential development;
iii. increasing pressure to expand the existing hamlets within the
corridor;
iv. large scale land speculation;
v. impacts associated with the operation of the freeway; and
iv. the ability to serve recreational traffic demands and relieve
weekend congestion.
2.2 Economic Development Opportunities
Improvement of the highway network within Durham would relieve an
already congested Highway 401. Further congestion of Highway 401 could
discourage the locating, expanding or sustaining of industrial
operations within the Town.
Improved access to the north half of Darlington and Clarke Townships,
via Highway 407, will however, result in increased pressure to develop
industrially along the proposed highway. The proposed Rural Area
Policies for the Durham Region Official Plan, Section 1.4.12, would
allow for a limited number of industrial parks to be located in the Oak
Ridges Morraine. The 407 corridor in conjunction with this proposed
Rural Area Policy will encourage industrial development particularly at
the 407 and 35/115 interchange.
Improved accessibility will improve opportunities for business and
industrial activity and will hence improve work-live relationships and
reduce out commuting from the Town and the Region.
M
REPORT NO.: PD- 246 -89 PAGE 9
2.3 Inceased Demand for various Forms of Rural Residential Development
Improved access to the northern reaches of the municipality which
correspond to the Scenic Oak Ridges Morraine, will make this area
attractive for estate residential development, rural clustering and
scattered individual severance applications. These types of rural
residential development are not seen as a preferrable form of rural
development by this municipality.
2.4 Increasing Pressure to Expand the Existing Hamlets
As demand for rural housing increases within this municipality, and
since this municipality has formally taken the position that rural
growth shall be directed towards hamlets, the hamlets within the Town
will be under tremendous pressure to expand to accomodate this growth.
The Ministry's study recognizes the potential for second tier
communities north of Whitby and Oshawa. it is the opinion of Staff that
under optimistic population growth scenarios, a second tier community
within the Town may also be necessary. Staff will be presenting a
report on future long term development options for Council consideration
in the future.
2.5 Large Scale Land Speculation
Large tracts of land are being bought both within the corridor and on
the fringe of the corridor as a long term speculative investment. There
is no avenue to which this municipality can prevent the transfer of
ownership for speculative purposes. One of the primary concerns is that
once investors own agricultural land, .long term agricultural activity
will be clearly secondary and the necessary inputs and care for the soil
will not be undertaken.
...10
Fqa n7
REPORT P�-246-89 PAGE N8 : ��� IO
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2.6 Impacts Associated with the operation of the Freeway
Once the 407 has been constructed it is anticipated that conflicts with
agricultural practices and the possibility of ground water contamination
may arise. The salting of the highways, the dust and noise generated by
vehicular traffic, and emissions produced by these vehicles, contribute
to these conflicts and must be addressed by the Ministry through an
Environmental Assessment, as part of the 407 Route Alignment Study.
2.7 The Ability to Serve Recreational Traffic Demands
The 407 and new north/south connectors will provide additional travel
routes for weekend traffic. It will provide some initial relief from
the congestion caused by oottagero and campers during peak weekend
travel periods and will provide some minor economic development
spinoffs. However, given the Ministry's projections of continuing
congestion, as travel demands outpaces Government's ability to improve
the transportation system, it can be anticipated that this relief will
be temporary at beat,
3. COMMENTS
3.1 On July IOv 1989' Council of the Town of Newcastle passed Interim
Control By-law 89-124 to protect lands under consideration for the
north/south freeway connection wetweeu Highway 401 and 407. The intent
of passing such a by-law was to:
i) confirm Council's support in principle for the development of
Highway 407;
ii) provide the Tovnz«a endorsement of the Iow|Le Selection Study for
Highway 407;
iii) provide the Town's endorsement of the designation of a north-south
freeway connection east of Regional Road 34 and the Couctine Urban
Area; and
iv) request the Ministry of Transportation to act forthwith on
conducting a Route Selection Study for the north-south connector
freeway.
...lI
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3.2 On February 13, 1989, Council of the Town of Newcastle passed a
resolution that requested the Region of Durham to implement a major
study of the Ganaraska area. In addition, a request to the Minister of
the Environment for the Ganaraska Watershed to be designated under
Environmental Assessment Act has been referred to the Environmental
Assessment Advisory Committee, and is at the time of writing of this
report, under open review. The Ministry of Transportation when
preparing their Route Selection Study/Environmental Assessment should
have regard, both for the Ganaraska Headwaters, and for the headwater
areas of other watersheds in the Oak Ridges Morraine.
3.3 It is imperative that the freeway network as illustrated in figure 6 be
protected and that the ensuing route selection process and environmental
studies progress forward, to ensure that this municipality and the
Regional municipality are in a position to accomodate and serve future
growth needs.
4. RECOMMENDATIOBN
4.1 It is respectfully recommended that a copy of this report be forwarded
to the Ministry of Transportation as the Town's response to the Highway
407 Overview Study (Highway 48 to Highway 35/115).
Respectfully submitted,
------------------
Franklin Wu, M.C.I.P.
Director of Planning & Development
JDB*DC*FW*cc
*Attach.
September 18, 1989
Recommended for presentation
to the Committee
-- -----------------
L 4 wrence Kotseff
Chief Adm' istrative Officer
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