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Report To: General Government Committee
Date of Meeting: September 26, 2016
Report Number: EGD-036-16 Resolution:
File Number: By-law Number:
Report Subject: Mill Street South Pedestrian Facility
Recommendations:
1.That Report EGD-036-16 be received;
2.That a 1.5-metre-wide pedestrian facility be constructed on the west side of Mill Street
South, as detailed in this report;
3.That traffic calming measures and road safety improvements be implemented as noted in
Section 1.3 of this report;
4.That additional funding in the amount of $320,000 for these improvements be included in
the 2017 Capital Budget;
5.That staff budget approximately $5,250 annually for snow clearing on Mill Street South; and
6.That all interested parties listed in Report EGD-036-16 and any delegations be advised of
Council’s decision.
Municipality of Clarington
Report EGD-036-16 Page 2
Report Overview
Public Information Centres (PIC’s) held on November 19, 2014, and November 12, 2015,
obtained input from residents for proposed improvements to the local transportation network in
Bond Head for drivers, cyclists and pedestrians using Mill Street South, as well as the
proposed future expansion of Bond Head Waterfront Park. Subsequent to the November 12,
2015, PIC, Option 2 was recommended to Council in Report EGD-010-15:A multi-use trail on
the west side of Mill Street South from Metcalf Street to Boulton Street.
Additional information on construction around mature trees, permeable surfaces and next
steps for the project was presented to the public at a third PIC on March 7, 2016. Staff also
recommended a modified version of Option 2, to be constructed in two phases with Phase 1 to
include the construction of a 1.5-metre-wide pedestrian facility on the west side of Mill Street
South and Phase 2 to include widening of Mill Street South by 2.0 metres on each side to
accommodate bike lanes. Engineering staff proposed Phase 1 of the transportation
improvements be considered as part of the 2016 Capital Budget, and deferred Phase 2 to
future budget allocations.
Based on public comments received at and subsequent to the third PIC, and Council direction
under Resolution #C175-16, Engineering was authorized to proceed with detailed design of
Phase 1: integrate a permeable surface into the 1.5-metre-wide pedestrian facility on the west
side of Mill Street and provide special consideration for comprehensive tree preservation on
the previously proposed pedestrian facility.
A fourth PIC was held on August 25, 2016, to present the detailed design and safety review
conducted by Municipal Staff and CIMA+, Clarington’s consultant, to help residents understand
the reasoning behind the design. This report provides analysis of public response and
recommendations for proceeding with the detailed design of the Mill Street South pedestrian
facility, as presented, with additional, specific requests from resident incorporated into the
design where appropriate.
Background
1.1. Project Chronology
2006 Municipality began monitoring speeds on Mill Street South, initiated by speed
complaints received from Clarington residents
2011 July 29 – Motor vehicle accident involving a pedestrian occurs on Mill Street
South
Municipality of Clarington
Report EGD-036-16 Page 3
2014 June 22 – Miovision™ installed at south end of Mill Street South – the results
helped the Engineering Department to recognize that access to the park would
need to be improved
2014 November 19 – PIC #1: 3 concept options for a multi-use trail were presented
for public input
2015 May 25 – Report EGD-010-15 goes to Council
2015 November 12 – PIC #2 – based on public input and further analysis, preferred
option was developed and presented to public
2016 February 16 – EGD-008-16 goes to Council
2016 March 29 – Presentation to General Government Committee
2016 March 7 – PIC #3: Additional information on construction around mature trees,
permeable surfaces, next steps for the project was presented to the public
2016 April – Resolution GG-181-16: Transportation Improvements deferred until
CTMP is released.
2016 July 7 – Resolution #C175-16 – proceed with detailed design of 1.5-metre
permeable path on the west side of Mill Street South
2016 August – Tree Inventory and Assessment and safety review conducted for Mill
Street South from Port of Newcastle Road to Boulton Street
2016 August 25 – PIC #4
1.2. PIC #4 Structure and Overview
The purpose and structure of the meeting was shared with those in attendance along with
Council’s specific direction with regard to Council resolution #C175-16, a general discussion of
the project background and a review of public input received to date.
A recommended design was presented and attendees were made aware that the design is an
evolution of previous designs as well from ongoing public input. Assurances were made that
Council and staff have been listening and responding appropriately, that the proposed design
reflects a balance of needs and desires brought forth by the public and that it is supported
through the following additional studies provided by CIMA+ for the project:
A detailed tree inventory and assessment as well as an investigation of topsoil depth
and tree root location, providing recommendations to preserve the health of the existing,
mature tree canopy through species diversity, age distribution, overall tree health
considerations and a low impact construction approach.
A traffic safety review for Mill Street South from Port of Newcastle Road to Boulton
Street that provided design recommendations supporting local, provincial and industry
standards and addressing recorded safety concerns experienced by roadway users.
Municipality of Clarington
Report EGD-036-16 Page 4
1.3. PIC #4 – Summary of the Presented Design
Based on the foregoing, the following design elements and considerations have been
addressed in the presented design:
Rural character and waterfront heritage value
There is a clear consensus that the existing tree canopy and rural character of Mill Street
South be preserved wherever possible.
In this respect, the proposed design improves on alternatives investigated at previous PICs by
providing the least invasive solution that still addresses identified public safety concerns and
requirements. One of the chief characteristics of the design is that it maintains public
enjoyment of the valuable cultural and heritage resources available to pedestrian facility users
on Mill Street South as it approaches the Bond Head Waterfront Park.
Pedestrian facility (proposed ultimate works)
Based on applicable standards, CIMA+’s traffic safety experts have confirmed the need for a
pedestrian facility that is separate from the road.
The responsibility to reasonably apply these standards within existing physical constraints
provided by the project site is a municipal concern. The proposed design has balanced this
concern carefully with public input provided for the project and offers a pragmatic and effective
solution that will stand the test of time. Highlights of the design include:
Keeping the pedestrian facility as close to the existing ground elevation as possible to
minimize impacts to trees and vary the horizontal geometry (deviate from the straight-
line path) to move the pedestrian facility as far away as possible from homes built close
to the roadway, avoid impacts to significant trees, and avoid costly utility relocations.
This will support the perception that the pedestrian facility is mimicking a natural rural
path, built around existing trees and obstacles, rather than a linear urban sidewalk.
Integration of a course aggregate asphalt is recommended and can be permeable or
not; however, given public opinion, it is suggested that available funds be spent on
construction techniques to minimize impact to tree roots (vacuum excavation, high
performance bedding) rather than the premium for permeable asphalt which will have
minimal benefit given the surrounding environment and may require deeper excavation.
Curb will be required where the sidewalk is adjacent to the roadway. Barrier curb will be
used rather than curb and gutter as it has a reduced visual impact (narrower profile) and
can be coloured to create better visual awareness for drivers, warning them of the
proximity of pedestrian traffic to the roadway.
Municipality of Clarington
Report EGD-036-16 Page 5
A boardwalk has been recommended at the south limit with a potential viewing platform.
The purpose of this construction choice is to accommodate constraints imposed by the
width of the right-of-way, but will also serve to enhance the rural feel of the pedestrian
facility and provide pedestrians with an opportunity to pause and enjoy the waterfront
view from the vantage point of a scenic lookout.
It is noted that the proposed design does not fully comply with applicable safety standards
where surface elevation of the pedestrian facility is significantly lower and in close proximity to
the adjacent roadway. The issue is that stopping distance for a vehicle that loses control and
leaves the roadway is increased when moving down a slope. As a guideline, exceeding the
standard is allowable if reasonable precautions are made to counteract the resulting effect. In
this case, reducing the roadway speed to 40 km/h will provide an alternate method of reducing
stopping distance in such an event.
Traffic calming and roadway safety improvements
The safety review also took a careful look at appropriate traffic calming measures that could
feasibly be implemented for the project and in the process examined existing Phase 2
recommendations to widen Mill Street South by 2.0 metres on each side to accommodate bike
lanes. The report found that, the following measures would achieve the same safety objectives
as Phase 2 works:
Construct speed tables at Metcalf and Queen Victoria Streets and provide a stop
condition at Boulton Street. Speed tables are raised asphalt platforms that provide a
less jarring form of speed control that generates less environmental noise (i.e.,
suspension and shifting load noise produced by cargo vehicles) when compared to
speed bumps or speed humps.
Drop the speed limit to 40 km/h and install “Share the Roadway” signage and paint
markings for motorists and cyclists. These measures are key in mitigating safety
concerns for cyclists and motorists as well as pedestrians in the event of vehicle loss of
control.
Extend guiderail at the northerly end where the roadway is adjacent to the creek
Removal of Phase 2 works from the project
Given the preceding, Phase 2 works will no longer be necessary if traffic calming and roadway
safety improvements recommended in CIMA+’s safety review are implemented with
construction of the proposed, modified pedestrian facility (Ultimate Design).
Municipality of Clarington
Report EGD-036-16 Page 6
There are several significant benefits to this:
Proposed Phase 2 works have been an ongoing source of public opposition. It is
expected that removal would assist in mitigating public concern over the project by
addressing safety concerns while retaining Mill Street South’s rural character and
helping to preserve the existing mature tree canopy.
Elimination of Phase 2 works represents an environmentally low impact solution.
Design and construction costs will be significantly reduced if Phase 2 is not
implemented, though modifications based on recommendations in the safety review and
this report will incur some additional cost to the original proposed Phase 1 works, as
follows:
Proposed Works Estimate
Phase 1 (original) $ 430,000
Phase 2 (original) $ 730,000
Total original cost $1,160,000
Ultimate Design (modified
Phase 1)
$ 750,000
Total savings $ 410,000
Impacts to specific properties
Through the public consultation process, design considerations specific to identified properties
have been implemented for following addresses:
628 Mill Street
620 Mill Street
608 Mill Street
612 Mill Street
592 Mill Street
590 Mill Street
568 Mill Street
Details of these requests are documented in the project files and have been approved by the
Engineering Department.
Municipality of Clarington
Report EGD-036-16 Page 7
Snow clearing
Clarington’s Consolidated Snow Clearing By-law 93-144 requires that residents keep
sidewalks fronting their property cleared of snow and ice. Implementation of a pedestrian
facility on the west side of Mill Street South will create a significant burden on affected
residents with regard to snow clearing.
This burden can be somewhat mitigated by Clarington’s Senior Citizens and the Physically
Disabled Snow Clearing Program which provides snow clearing in Clarington’s urban areas
and hamlets through the Operations Department, pending successful application and payment
of a nominal application fee. However, this program cannot consistently address all affected
residents whose frontages generally exceed 50 metres in length, and will not address the local
orchard properties with affected frontage exceeding 325 metres.
The preferred alternative would be to transfer responsibility for clearing snow on the proposed
pedestrian facility to the Municipality. There are several reasons to do this:
The Municipality is responsible for clearing municipal rights-of-way. There are six
municipal rights-of-way that cross the proposed pedestrian facility, as well as 146 m of
Clarington property at the north end and 70 m at the south end of the project. This
means that the Operations Department, as part of the Municipality’s responsibility would
clear snow on approximately 350 m (35%) of the facility’s total length. The Operations
Department has been consulted in preparing this report and has advised that winter
maintenance of this section of sidewalk is estimated at approximately $5,250 (2016
costs per year). The Operations Department also advised that they propose to carry
this item as a Priority “A” item in the 2017 Budget provided the project is approved,
because the new sidewalk will be a main pedestrian route to the waterfront.
There is some precedent for the Municipality to take over responsibility for clearing
snow from the pedestrian facility as Mill Street South is part of the Lake Ontario
Waterfront Trail system and if built would provide the only dedicated pedestrian facility
providing safe access to Lake Ontario at Bond Head while maintaining the unique
character along this section of the trail.
Given the preceding, having the Municipality responsible for clearing snow along the full length
of the pedestrian facility would benefit the area community, and would alleviate substantial
additional burden to the affected residents.
Municipality of Clarington
Report EGD-036-16 Page 8
1.4. PIC #4 – Analysis of Public Response
Thirty-six interested parties attended and signed the register at PIC #4. Twelve comment
sheets were submitted with a total of approximately thirty individual comments.
Councillors in attendance, municipal staff and members of CIMA+’s consulting team were
pleased with the outcome of this PIC. Despite earlier opposition, once the recommended
design was presented to those in attendance, the mood at PIC #4 became very positive. Many
complements were received from attendees and the overall impression was that the
recommended design had been well received.
Three of the twelve comment sheets submitted support this assessment and are summarized
below:
1. Very pleased with presented solution and support it fully, including the pedestrian
facility. Appreciate tree survey. Traffic calming measures are sensible.
2. Very pleased with presented solution including pedestrian facility and traffic calming.
Would prefer natural-looking materials for sidewalk and curb
3. Very pleased with presented solution, including conservation of trees, traffic calming
measures and pedestrian safety/facilities
The remaining nine comment sheets are summarized in the following table. A brief description
of corresponding mitigation measures supported by the recommended design is also provided.
Comment Summary Mitigation
Too close to tree
Leave as is
Put in stops signs and
crosswalks instead
Recommendations from the tree inventory and assessment
will protect existing trees from construction activities.
A stop condition will be introduced at the corner of Boulton
Street and Mill Street South.
In place of crosswalks, traffic calming measures will be
introduced at key intersections and a reduction in speed to
40 km/h will be implemented on Mill Street South.
Consider options including
stop signs and road control
or George Manners
alternative
A stop condition will be introduced at the corner of Boulton
Street and Mill Street South.
In place of crosswalks, traffic calming measures will be
introduced at key intersections and a reduction in speed to
40 km/h will be implemented on Mill Street South.
Alternative design options for a pedestrian facility were
considered and determined to be less effective overall due to
existing design constraints and value to the community.
Municipality of Clarington
Report EGD-036-16 Page 9
Comment Summary Mitigation
Plant mature trees.
Do not want to shovel
sidewalk.
Believe there are more than
60 pedestrians per day.
Black pavement is ugly.
A planting plan will be prepared and implemented to ensure
continued health of the existing tree canopy
It has been recommended that the Municipality of Clarington
take over responsibility for snow clearing along the
pedestrian facility
The pedestrian facility provides the safest alternative to
accommodate existing and future pedestrian traffic on Mill
Street South
Pavement alternatives will be investigated in final design
Do the right thing. Keep
your word.
The Municipality of Clarington will proceed with the
recommended design as the best fit solution for the needs of
local residents and the municipality at large
Like the traffic calming
bumps. Do not reduce
speed limit. Like small curb
and not opposed to asphalt.
Pleased with 2/3-way stop
at corner
To ensure effectiveness of traffic calming and other safety
elements associated with the design, a reduction in the
speed limit is necessary.
Barrier curb (small curb) will be implemented in the design
A stop condition will be introduced at the corner of Boulton
Street and Mill Street South.
Request sidewalk at edge
of road at 626 Mill Street
Design requests for individual properties will be
accommodated wherever possible.
No need for improvements.
Good as is.
The Municipality of Clarington will proceed with the
recommended design as the best fit solution for the needs of
local residents and the municipality at large
Approve of speed bumps.
No sidewalks.
The pedestrian facility provides the safest alternative to
accommodate existing and future pedestrian traffic on Mill
Street South
Want traffic calming but not
pedestrian facility, curbs,
traffic circles or treed
median.
Traffic calming will be implemented as per the recommended
design.
The pedestrian facility provides the safest alternative to
accommodate existing and future pedestrian traffic on Mill
Street South
Traffic circles and treed medians are not included in the
recommended design
Use of curbs will be limited to locations where they are
required for pedestrian safety
Municipality of Clarington
Report EGD-036-16 Page 10
Input Received Post PIC #4
One resident suggested an
alternative with a curb
down the entire length of
Mill St., on the west side
with sidewalk directly
behind.
Residents have stated that keeping the rural character of Mill
St. is a major concern. Keeping the path separate from the
road edge wherever possible allows us to preserve the
natural charm of Mill St.
The addition of curb to the street narrows the driving lane
width and may require us to widen the road
Widening of the road platform would complicate existing
drainage pattern for the road. The short sections of curb
proposed at the PIC do not have a significant impact on lane
width requirements
Road widening may necessitate the introduction of a local
storm sewer system and/or ditch
A curb the full length of the street would reduce the
effectiveness of the traffic calming measures we have
proposed
Existing underbrush along Mill St. is dominated by invasive,
exotic species that are competing with native herbaceous
species. We recommend removal of invasive species where
appropriate
Two residents suggested
that roundabouts be added
for traffic calming
The existing right-of-way is not wide enough to accommodate
a properly sized roundabout.
Private property would need to be purchased by the
Municipality
Other traffic calming measures are proposed to assist with
the safety improvements
Next Steps
Prior to implementation, the recommended design will require some refinement to
accommodate PIC #4 outcomes. These will include:
Refinement of the sidewalk alignment at specific locations to accommodate resident
requests
Associated streetscape design where sidewalk alignments have changed
Minor refinement of boardwalk and viewing platform area
Addition of recommended traffic calming measures and signage
Municipality of Clarington
Report EGD-036-16 Page 11
Proposal
Based on the preceding analysis and input from previous PICs conducted for this project, the
Engineering Department has concluded that the recommended design detailed in this report
provides a good balance between the various n eeds and desires of respondents while fulfilling
municipal responsibility to exercise its due diligence in implementing roadway and pedestrian
safety improvements outlined in the Mill Street South safety review.
Implementation of the proposed design will require:
1. Construction of a pedestrian facility on Mill Street South as presented at PIC #4, with
minor modifications to the final design as discussed in Section 1.4 and Section 2 of this
report
2. Implementation of traffic calming measures and road safety improvements as noted in
Section 1.3 of this report
3. Budgeting approximately $5,250 annually f or snow clearing.
Concurrence
Not applicable.
Conclusion
It is respectfully recommended that Council endorse the recommendations provided in this
report and direct staff to proceed with implementation of the proposed design as detailed in
this report.
Strategic Plan Application
The recommendations contained in this report confo rm to the Strategic Plan.
Submitted by: Reviewed by:
Anthony S. Cannella, C.E.T. Curry Clifford, MPA, CMO
Director of Engineering Services Interim CAO
Staff Contact: Karen Richardson, Capital Works Engineer, krichardson@clarington.net, Ext.
2327,
Municipality of Clarington
Report EGD-036-16 Page 12
Attachments:
N/A
List of interested parties to be notified of Council's decision is on file in the Engineering
Services Department.
ASC/RA/kr/jb