HomeMy WebLinkAboutEGD-040-16
Engineering Services
Report
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Report To: General Government Committee
Date of Meeting: November 28, 2016
Report Number: EGD-040-16 Resolution:
File Number: By-law Number:
Report Subject: Approval of Final Clarington Transportation Master Plan
Recommendations:
1. That Report EGD-040-16 be received; and
2. That Council approve the recommendations identified in the Clarington Transportation
Master Plan – Final Report as provided in report EGD-040-16.
Municipality of Clarington
Report EGD-040-16 Page 2
Report Overview
This report recommends the approval of the Clarington Transportation Master Plan – Final
Report by Clarington Council. It has taken into consideration the public and contributing
agencies’ comments. The full version of the Clarington Transportation Master Plan-Final
Report can be found at or the
Engineering Services Department can provide a hard copy if required.
1. Background
The purpose of this report is to obtain Council approval of the Clarington Transportation
Master Plan (CTMP) – Final Report.
The Clarington Transportation Master Plan (CTMP) is a planning document that provides
a comprehensive assessment of the long-term transportation system infrastructure and
policy needs across all modes of transportation in the Municipality of Clarington (also
referred to as Municipality or Clarington). The purpose of the CTMP is to provide a
coordinated and integrated implementation strategy for the transportation system that will
guide decision-making within the Municipality over the next 20 years.
The CTMP was prepared following the Master Planning process (i.e., Phases 1 and 2) of
the Municipal Class Environmental Assessment process, and provides the context for the
implementation of proposed transportation improvements within Clarington. Subsequent
phases of the Class EA process (i.e., Phases 3 and 4) will be required for projects /
studies with the potential for impacts to the environment. More detailed investigation and
further consultation will be required to implement specific projects recommended in the
CTMP.
An extensive consultation program was carried out as part of the CTMP to provide
information to stakeholders on all components of the study and facilitate a full spectrum of
community and agency input. The consultation program included:
Establishment of a study website;
Notification of consultation events via mail, email and information screens at the
Municipal Administrative Centre;
Steering committee and stakeholder meetings; and
Two formal Public Information Centres (PICs).
Municipality of Clarington
Report EGD-040-16 Page 3
The feedback received from the public and other stakeholders during the course of the
study generally indicated a strong desire for improvements to:
Active transportation
Infrastructure and associated policies
Transit integration
Service and accessibility
Selected areas of the road network.
2. Summary of Clarington Transportation Master Plan
2.1 Problem Statement
Clarington’s population and employment is expected to grow by 50,000 people and
15,000 new jobs by 2031. This increase will put pressure on the existing transportation
system and drive requirements for new infrastructure and programs. The key network
deficiencies and transportation problems and opportunities that Clarington is expected to
face by 2031 can be summarized as follows:
Congestion on Roads Crossing Bowmanville Creek
Increased pressure on Longworth Avenue and Concession Road 3 in the vicinity of
Bowmanville Creek is due to the significant population growth in northern Bowmanville.
The creek acts as a natural barrier to travel with Baseline Road, King Street / Highway 2,
and Longworth Avenue as the only existing crossing within the urban area. Alternatives
identified in the TMP to address this need include:
The widening of Longworth Avenue (including the existing crossing which is designed
to accommodate a four-lane cross-section)
The extension of Longworth Avenue to the west
The extension of Nash Road across Bowmanville Creek
Congestion on Roads Leading to Highway 401 Interchanges
Major issues here include:
Courtice Road North and south of Highway 401
Liberty Street north and south of 401
Waverley Road at Highway 401
Municipality of Clarington
Report EGD-040-16 Page 4
Analysis of these roads used to access Highway 401 revealed the need for at least
one additional lane of traffic (in each direction) to accommodate the expected
congestion.
It was also found that most trips accessing Highway 401 through the Bowmanville
interchanges originate in central Bowmanville or north of Bowmanville.
Since the approach to the Liberty Street/Highway 401 interchange will be challenging
to upgrade due to a range of engineering and environmental factors as well as the
existing residential and commercial property constraints, a new Highway 401
interchange at Lambs Road, and/or network improvements to encourage increased
usage of the Holt Road interchange (already planned to be improved to a new full
access interchange) may be able to address this need. The introduction of an
interchange at Lambs Road would result in the partial or full removal of the Liberty
Street and Bennett road interchanges.
Capacity issues within urban areas of Bowmanville and Courtice
The 2031 base forecasts revealed three isolated congestion hot spots primarily in the
vicinity of downtown Bowmanville and Courtice, including:
Prestonvale Road South of Regional Highway 2 (Courtice)
Scugog Street North of King Street / Regional Highway 2 (Bowmanville)
Concession Road 3 east of Regional Road 57 (Bowmanville)
2.2 Active Transportation
Public feedback received through the CTMP study process consistently demonstrated a
desire for improvements to active transportation infrastructure, including modifications to
existing routes, provision of new routes and development of policy approaches. It is
recognized that recreational cycling and cycle tourism are important to maintaining a
healthy and liveable community and enhancing Clarington’s overall attractiveness for
investment. Clarington will continue to work with cycling groups to promote and
encourage the use of Clarington’s off-road trail and on-road cycling infrastructure for
recreational purposes.
In order to support an increased role for active transportation in Clarington, an Active
Transportation System consisting of interconnected on-road facilities and off-road trails is
recommended. The active transportation network at the overall municipal level includes
both on-road facilities and off-road trails within Courtice, Bowmanville, Newcastle, and
Orono, and identifies “Key Trails” that serve as important active transportation links that
can be used for commuting purposes.
The following tables present estimates of the capital funding requirements to support the
implementation of the proposed Active Transportation System to 2031. These are shown
by community but in no particular order. The cost estimates are based on high-level unit
per km costs developed from recently implemented on-road bicycle lanes and off-road
trails in Clarington. Items marked with an asterisk are partially or fully completed.
Municipality of Clarington
Report EGD-040-16 Page 5
Cycling Network
Community Facility Type Route Location Length
(km) Cost ($)
Courtice Cycle Lane Nash Road Townline Road to
Varcoe Road * 0.40 $8,000
Courtice Signed /
Shared Lanes Nash Road Varcoe Road to
Centerfield Drive * 0.40 $6,000
Courtice Cycle Lane Nash Road Centerfield Drive to
Harry Gay Drive * 2.50 $50,000
Courtice Signed /
Shared Lanes Trulls Road
Pebblestone Road to
Adelaide Avenue
(extension) *
1.10 $16,500
Courtice Cycle Lane Trulls Road
Adelaide Avenue
(extension) to south of
Avondale Drive *
2.60 $52,000
Courtice Signed /
Shared Lanes Trulls Road South of Avondale Drive
to Bloor Street 0.75 $11,250
Courtice Signed /
Shared Lanes
Prestonvale
Road
Highway 2 to Robert
Adams Drive 0.17 $2,550
Courtice Cycle Lane Prestonvale
Road
Robert Adams Drive to
Glenabbey Drive * 1.00 $20,000
Courtice Signed /
Shared Lanes
Prestonvale
Road
Glenabbey Drive to
Bloor Street * 0.65 $9,750
Courtice Cycle Lane Trulls Road Bloor Street to Cigas
Road 1.70 $34,000
Courtice Cycle Lane Cigas Road Trulls Road to Baseline
Road/Courtice Road 0.95 $19,000
Courtice Cycle Lane
New Road to
Future GO
Station
Trulls Road to Future
GO Station 0.65 $13,000
Courtice Paved
Shoulder Courtice Road Baseline Road to South
Service Road 0.40 $70,000
Courtice Signed /
Shared Lanes
Sandringham
Driver/Yorkville
Drive
Prestonvale Road/Claret
Road to Trulls
Road/Yorkville Drive
1.00 $15,000
Courtice Separate
facility Highway 2 Townline Road to
Courtice Road 3.00 $60,000
Courtice to
Bowmanville
Separate
facility Highway 2 Courtice Road to Green
Road 5.40 $1,890,000
Courtice to
Bowmanville
Signed /
Shared Lanes Nash Road Harry Gay Drive to
Regional Road 57 5.90 $88,500
Bowmanville Separate
facility Highway 2 Green Road to Lambs
Road 4.40 $88,000
Municipality of Clarington
Report EGD-040-16 Page 6
Cycling Network
Community Facility Type Route Location Length
(km) Cost ($)
Bowmanville Cycle Lane Green Road Nash Road to Baseline
Road * 4.10 $82,000
Bowmanville Paved
Shoulder
Baseline
Road/Holt
Road
Holt Road (at OPG
Darlington) to Baseline
Road/Green Road
2.70 $472,500
Bowmanville Cycle Lane Baseline Road Martin Road to Lambs
Road 3.30 $66,000
Bowmanville Cycle Lane Aspen Springs
Drive
Bonnycastle Drive to
Regional Road 57 * 0.17 $3,400
Bowmanville Signed /
Shared Lanes
Lake
Road/Port
Darlington
Liberty Street to Port
Darlington/East Beach
Road
1.60 $24,000
Bowmanville Cycle Lane Longworth
Avenue
Green Road to 400m
east of Regional Road
57
1.26 $25,200
Bowmanville Cycle Lane Longworth
Avenue
Don Morris Court to
Laurelwood Street * 0.45 $9,000
Bowmanville Cycle Lane Longworth
Avenue
Argent Street to Mearns
Avenue * 1.00 $20,000
Bowmanville Cycle Lane Concession
Road 3
Regional Road 57 to
Mearns Avenue 2.50 $50,000
Bowmanville Cycle Lane Middle Road
Bowmanville North
Boundary to Bons
Avenue
1.40 $28,000
Bowmanville Cycle Lane Scugog Street 4th Street to
Concession Street * 0.80 $16,000
Bowmanville Separate
facility
Regional Road
57
Stevens Road to Aspen
Springs Drive (Future
GO Station)
0.75 $15,000
Bowmanville Signed /
Shared Lanes Liberty Street Concession Road 3 to
Longworth Avenue 0.75 $11,250
Bowmanville Cycle Lane Concession
Street
Liberty Street to Mearns
Avenue * 0.80 $16,000
Bowmanville Cycle Lane Lambs Road Rail Crossing to
Baseline Road 3.10 $62,000
Bowmanville
to
Newcastle
Signed /
Shared Lanes
Concession
Street/Arthur
Street
Mearns Avenue to
Arthur Street/Highway 2
*
9.40 $141,000
Newcastle Cycle Lane
Rudell
Road/Edwards
Street
Rudell Road/Highway 2
to Edward
Street/Brookhouse Drive
*
1.40 $28,000
Municipality of Clarington
Report EGD-040-16 Page 7
Cycling Network
Community Facility Type Route Location Length
(km) Cost ($)
Newcastle Cycle Lane Mill Street Edward Street to
Highway 401 0.35 $7,000
Newcastle Signed /
Shared Lanes Mill Street Highway 401 to Toronto
Street 0.29 $4,350
Newcastle Multi Use Path Mill Street Toronto Street to Port of
Newcastle Drive 0.26 $91,000
Newcastle Cycle Lane Brookhouse
Drive
Highway 2 to Edward
Street * 0.35 $7,000
Newcastle Cycle Lane
Mill
Street/North
Street
Concession Road 3 to
Edward Street 2.50 $50,000
Newcastle Signed /
Shared Lanes Highway 2 Rudell Road to
Brookhouse Drive 1.60 $32,000
Total 73.80 $3,714,250
Supporting policy measures were also developed to increase the attractiveness,
awareness, and visibility of active transportation in Clarington. Policy recommendations
include marketing strategies to promote use of Clarington’s active transportation facilities
and the development of an Active Transportation Plan. The recommended active
transportation program could be overseen by a new Active Transportation Advisory
Committee who would assist with the development of an Active Transportation Master
Plan, which is intended to further develop and prioritize a funding mechanism for the
policies and programs that support and encourage use of active transportation.
A Complete Streets Policy is also recommended to support new development areas and
for implementation along identified active transportation corridors. Capital funding is
required to support the implementation of the proposed Active Transportation System. It
is also recommended that a fixed annual budget be allocated to support non-network
infrastructure related initiatives.
2.3 Transit Services
The need for improved transit services within Clarington was noted by members of the
public during the course of this study. While not a direct provider of transit service within
the municipality, Clarington will work with Durham Region and Metrolinx to review and
support the implementation of existing initiatives, as well as these recommended services
as part of DRT and GO Transit:
GO Rail Bowmanville Extension and encourage the extension of service to urban
areas of Courtice and Bowmanville, especially to the new GO stations in these
communities
Higher-Order Transit on Regional Highway 2 to Courtice
Municipality of Clarington
Report EGD-040-16 Page 8
An extension of higher-order transit service along Regional Highway 2 through to the
Bowmanville GO Rail station
407 Transitway bus service (not higher order transit)
Enhanced service on Regional Highway 2 from Courtice to Newcastle
Restructured service to Orono
Expanded service in Courtice and Bowmanville
Expanded service to areas with existing service gaps
Expanded service in growth areas
It is further recommended that Clarington assume a strong support role through a number
of recommended measures to facilitate transit use. It should be noted that all of the
recommendations, with the exception of GO Transit services (both rail and bus), are
subject to the approval of the DRT Commission and Regional budget considerations.
2.4 Transportation Demand Management (TDM)
The core goal of TDM is to reduce the number of motor vehicles (particularly single-
occupancy autos) on the road during peak periods of congestion by encouraging people
to shift travel modes, use rideshares / carpools, shift times of travel, and shift trip making
patterns. The focus of TDM is on optimizing the movement of people rather than the
movement of motor vehicles and making more effective use of existing infrastructure. A
number of initiatives were included as part of the recommended TDM strategy to
encourage use of alternative transportation modes within the community:
Work closely with Metrolinx and the Region of Durham to support Smart Commute
Durham, promote TDM and monitor implementation and the benefits of TDM
measures throughout Clarington and co-host special events with Smart Commute
Durham.
Encourage the Region and Smart Commute Durham to develop and implement
school-based TDM programs at both the elementary and high school
Take a lead role in supporting the Municipality’s large employers in implementing trip
reduction
Lead by example through establishing a visionary TDM program for the Municipality of
Clarington
Develop a parking strategy for Bowmanville
Promote existing carpool lots and support the development of new lots
Require TDM Plans for major developments
Municipality of Clarington
Report EGD-040-16 Page 9
Long Term Road Network
Through the CTMP it was demonstrated that the public is interested in:
Improving safety, whether through reducing speeds or providing wider shoulders on
roadways
improving the existing road network, including rural roads
Providing for added connectivity through new connections.
To address these issues a number of road network alternatives were developed based on
the expected capacity deficiencies, and were evaluated against a broad range of criteria
to compare their respective advantages and disadvantages using both quantitative and
qualitative measures. The identified improvements were packaged into three network
alternatives and carried forward for further evaluation against the “Do Nothing” scenario.
Alternative A
A 4-lane extension of Longworth Avenue from Regional Road 57 to Holt Road
4-lane widening of Longworth Avenue from Scugog Street to Regional Road 57
Baseline Road and Holt Road improvements are also included.
Alternative B
A 4-lane extension of Longworth Avenue from Regional Road 57 to Maple Grove
Road
4-lane widening of Longworth Avenue from Scugog Street to Regional Road 57,
road upgrade
4-lane widening of Maple Grove Road from the new extension to Bloor Street, and
road upgrade
4-lane widening of Bloor Street from Maple Grove Road to Holt Road. Baseline
Road and Holt Road improvements are also included.
Alternative C – similar to Alternative A, in addition to the implementation of a new full
Highway 401 interchange at Lambs Road. With the introduction of an interchange at
Lambs Road, this alternative identifies the removal of the Liberty Street and Bennett
Road interchanges.
For comparison purposes, the “Do Nothing” alternative was included as part of the
evaluation of network alternatives. Each of the alternatives were assessed using the
refined Durham Region Travel Demand model to determine how well the improvements
addressed the capacity deficiency and improved the operation of the transportation
network.
Recommended improvements
Based on the results of the evaluation of alternatives, Alternative C was identified as the
recommended alternative, based on the following rationale:
Municipality of Clarington
Report EGD-040-16 Page 10
Addresses capacity deficiencies on Longworth Avenue and Concession Road 3 to the
east of the Bowmanville Creek, resulting in a volume over capacity ratio reduction from
1.02 (congested) to 0.65 (free-flow traffic).
Addresses capacity deficiencies on Liberty Street adjacent to Highway 401 and improves
network performance in Bowmanville by shifting commuter “through” traffic away from the
Liberty Street through the downtown core and onto the Holt Road/Highway 401
interchange, resulting in a 29% reduction in traffic along Liberty Street.
Supports planned population and employment growth by providing accessibility to
growing areas
Improves east-west movement within Bowmanville due to Longworth Avenue
improvements and extension, as well as the Baseline Road improvements.
Although Alternative C includes the full Longworth Extension through to Regional
Highway 2 near Holt Road, it is recommended that both the full extension (with improved
/ widened Holt Road) and the shortened extension through to Maple Grove Road (with
improvement to Maple Grove Road and Bloor Street) be carried forward for further study
as part of the EA process. The full extension performs marginally better from a technical
point of view by providing a more direct route to Holt Road and its Highway 401
interchange, but the full extension crosses through a known Provincially Significant
Wetland. Both the full extension and the shortened extension also have the potential
issues with property impacts. Future phases of the EA process will evaluate the benefits,
impacts, and potential mitigation measures (e.g. route alternatives) in more detail.
2.5 Intersection Operations
Growth in traffic also triggers the need for modifications to intersection control and / or
road geometry at selected locations. The below noted modifications at the following
intersections are recommended to address the future (i.e., Horizon Year 2031) capacity
issues identified through the CTMP assessment process:
Regional Highway 2/Prestonvale Road
- Westbound left-turn phase becomes permissive and protected
Regional Highway 2/Scugog Street
- Eastbound and northbound left-turn phases become permissive and protected.
- Southbound shared thru/right configuration modified to separate through and right-turn
lanes.
The intersection of Regional Road 57 / Concession Road 3 is proposed to be
reconfigured which would result in North Scugog Court being converted into a cul-de-sac
and Concession Road 3 connecting directly with Regional Road 57. The current road
configuration has the potential to create blockages for traffic attempting to turn left onto
Concession Road 3 from Regional Road 57 as westbound traffic on North Scugog
Municipality of Clarington
Report EGD-040-16 Page 11
Court queues. No further modifications are required at this intersection and stop sign
control is suggested to be retained, with the intersection monitored to determine when
signals would be required.
Implementation Strategy
The key recommendations of the CTMP are intended to be implemented through a series
of strategic policies and specific infrastructure optimization / improvements. The capital
funding requirements for the proposed road network improvements recommended as part
of this CTMP for short term (2015 to approximately 2021) and medium term
approximately 2021 to horizon year 2031) time horizons are estimated to be $65,000,000.
Several of the recommended projects are classified as Schedule C, requiring a higher
level of public consultation. According to the Class Municipal EA process, additional
studies (i.e., environmental assessments) are required to obtain approval to proceed with
project implementation. The six identified Schedule C projects, all located within or
adjacent to Bowmanville, are as follows:
Baseline Road from Mearns Avenue to Holt Road – Upgrade Standards/Bridge
Construction
Baseline Road from Lambs Road to Waverly Street – Widening to 4 lanes
Longworth Avenue Extension (A):
Longworth Avenue Extension (a and b) from Regional Road 57 to Bowmanville
West Urban Boundary – Widening to 4 lanes
Longworth Avenue Extension (a) from Bowmanville West Urban Boundary to Holt
Road – New Arterial 4 lanes
Holt Road from Longworth Avenue Extension (a) to Highway – Widening to 4 lanes
Longworth Avenue Extension (B):
Longworth Avenue Extension (a and b) from Regional Road 57 to Bowmanville
West Urban Boundary – Widening to 4 lanes
Longworth Avenue Extension (b) from Bowmanville West Urban Boundary to
Maple Grove Road – New Arterial 4 lanes
Maple Grove Road from Longworth Avenue Extension (b) to Bloor Street –
Widening to 4 lanes
Holt Road from Baseline Road to north limit of Highway 401 interchange – Widening
to 4 lanes
Lambs Road from Regional Highway 2 to Baseline Road – Widening to 4 lanes
Lambs Road Interchange
Note that Longworth Avenue Extension (A) and Longworth Avenue Extension (B) are
alternate road network options that are to be assessed in the same Schedule C Class
EA project.
Municipality of Clarington
Report EGD-040-16 Page 12
3.Recommendations
It is recommended that Council approve the Clarington Transportation Master Plan –
Final Report. In addition it is recommended, pending approval of the Clarington
Transportation Master Plan – Final Report, that a Notice of Study Completion,
Attachment No. 1, be published as required by the Municipal Class Environmental
Assessment process.
4. Strategic Plan Application
Recommendations of this report implement Action 4.1 of the Strategic Plan and Council’s
four year objective: “Enable safe, efficient traffic flow and active transportation”.
5.Concurrence
This report was prepared in consultation with the Planning Services Department, the
Operations Department and several other external agencies.
6.Conclusion
The approval of the Clarington Transportation Master Plan-Final Report will be a guiding
document moving forward in establishing a strong transportation network to support
Clarington’s future growth.
Submitted by: Reviewed by:
Anthony S. Cannella Curry Clifford, MPA, CMO
Director of Engineering Services Interim CAO
Staff Contact: Ron Albright, Assistant Director, Engineering Services, 905-623-3379 ext. 2305
or ralbright@clarington.net
Municipality of Clarington
Report EGD-040-16 Page 13
Attachments:
Attachment No. 1 Final Clarington TMP Notice of Completion
There are no interested parties to be notified of Council’s decision.
ASC/RA/jb
Notice of Study Completion
Clarington Transportation Master Plan
The Municipality of Clarington has prepared their first Transportation Master Plan following a Municipal
Class Environmental Assessment (MCEA) for a municipal-wide Transportation Master Plan (TMP). This
study has followed an approved process under the Environmental Assessment Act and was conducted in
accordance with the requirements of Phases 1 and 2 of the Municipal Class Environmental Assessment
document (October 2000, as amended in 2007). Master Plans are long-range plans that integrate
infrastructure requirements for existing and future land use with environmental assessment planning
principles in an effort to make comprehensive planning decisions. This Transportation Master Plan outlines
improvements needed to the Municipality’s transportation network to meet the forecasted travel demand to
year 2031. On December 12, 2016, the Municipality of Clarington Council approved the recommendations
in the Clarington Transportation Master Plan (CTMP) recognizing that each individual project recommended
in the Plan will be subject to the provincial Municipal Class Environmental Assessment process, and Council
approval for funding prior to implementation.
The CTMP provides the context and justification to implement specific transportation projects in the
Municipality by 2031, including selected intersection improvements, road widenings and road extensions.
All the recommended road network improvements will be subject to further study, public consultation and,
unless previously approved, the requirements of the Municipal Class Environmental Assessment process.
In addition the Plan includes strategies for the management of transportation demand, transit improvements
and the expansion of Clarington’s active transportation network which are equally as important as the road
network improvements.
The CTMP is strategically aligned with the Municipality’s Official Plan Review and Update to ensure a
seamless planning process. The study will incorporates public consultation to define a scope of issues,
develops a multi-modal transportation vision (i.e., active transportation modes such as walking and cycling,
and established modes such as personal assistive devices, public transit, automotive, rail initiatives, goods
movement, etc.), forecasts future travel demands, identifies opportunities, existing deficiencies,
recommends new transportation facilities, establishes policies and priorities, and provides an action plan
for implementation.
The Clarington Transportation Master Plan is available for public viewing at the Municipality of Clarington’s
website at at all Clarington Libraries and at the
Clarington Town Hall during regular business hours (40 Temperance Street, Bowmanville, ON L1C 3A6).
For further information on the Clarington Transportation Master Plan please contact the following project
team members:
Shari Harmsworth, P. Eng.
Project Manager
AECOM Canada Ltd.
300 Water Street
Whitby, ON L1N 9J2
Tel: D 905.668.9363 ext. 2350)
Fax: 905.668.023621
mail: Sheri.Harmsworth@aecom.com
Ron Albright, P. Eng.
Manager, Infrastructure and Capital Works
Municipality of Clarington
40 Temperance Street
Bowmanville, Ontario L1C 3AC
Phone: 905.623.3379 (ext. 2305)
Fax: 905.623.9282
Email: ralbright@clarington.net