Loading...
HomeMy WebLinkAboutPLN 12-20Cfy �t DICKERING Report to Planning & Development Committee Report Number: PLN 12-20 Date: July 13, 2020 From: Kyle Bentley Director, City Development & CBO Subject: The Municipal Comprehensive Review of the Durham Regional Official Plan: - Transportation System Discussion Paper, October 2019 - File: A-2100-020 Recommendation: 1. Beyond the "In Delivery" and "In Development" transit projects, City staff identifies the following transit projects that would assist in attracting transit riders and transit supportive development: a) the establishment of the Whites Road Priority Bus, extending from the Pickering GO Station along Bayly Street to Whites Road to Highway 7 (and providing connections to lands in Seaton designated high density residential and Community Node, and to lands in the Seaton Innovation Corridor); b) the implementation of light rail transit along Kingston Road; and c) the extension of GO rail service to Seaton; 2. Staff recommends that the Region only designate Regional Corridors adjacent to the arterial road corridors that are part of the High Frequency Transit Network; 3. Staff recommends that Transit Oriented Development policies and guidelines for Strategic Growth Areas (SGA) be tailored to the planned level of transit service, providing there is sufficient flexibility at the area municipal level to respect the local context of the specific SGA; 4. Staff supports the development of strategic and transportation -related policies in furtherance of Transit Oriented Development in Major Transit Station Areas, similar to those currently applied to Regional Centres; 5. Staff advises that a key issue that needs to be addressed to increase ridership from transit -supportive development is to allow closer traffic signal spacing to facilitate pedestrian crossings; 6. Staff supports the designation of additional Transit Hubs in the Regional Official Plan, corresponding with designated or future Urban Growth Centres, Regional Centres, or Major Transit Station Area, and providing there is sufficient flexibility at the area municipal level to respect the local context of the specific location; 7 Staff advises that when assessing new development, and reconstructing or building new public roads, new Regional Official Plan policies that would better support planning for all road users include: Report PLN 12-20 July 13, 2020 Subject: The Municipal Comprehensive Review of the Durham Regional Official Plan Page 2 a) policies indicating that a "complete street" includes the provision of sidewalks/multi use paths, boulevard planting and street lighting, and that it is a Regional responsibility to provide the pedestrian/cycling, planting and street lighting components of a complete street on Regional roads; b) policies allowing closer entrance and intersection spacing along arterials; and c) policies allowing closer traffic signal spacing along arterials to assist pedestrian crossings, and in keeping with transit -supportive development; 8. Staff advises that the Regional Official Plan could recognize or plan for enhanced trail connections through areas such as hydro corridors, by including: a) an informational map in the Regional Official Plan showing existing cycling and pedestrian trail networks, identifying gaps and opportunities; and b) a policy encouraging stakeholders (such as the area municipalities, conservation authorities, cycling and trail associations and committees, etc.) to collaborate with the Region to pursue new cycling/trail connections; 9. Staff supports incorporating into the Regional Official Plan future right-of-way width requirements for specific segments of arterial roads, particularly those sections within or adjacent to Strategic Growth Areas, as this may assist with development application review and Class Environmental Assessments (Class EA); 10. Staff advise that it is appropriate that the Regional Official Plan address using an integrated Class EA and Planning Act process in new growth areas to optimize the alignment and design of arterial roads as the combined processes would allow for a comprehensive evaluation, reduce duplication in meeting Provincial requirements, and expedite development; 11. With regards to the Region continuing its support for carpooling, staff recommends the Region: a) play a larger role in the provision of purpose-built commuter lots beyond the Small Urban and Rural Carpool Lot Program to implement commuter lots along major arterial roads and highways; b) continue its role engaging with area municipalities and businesses to promote carpooling programs in key destinations that provide connectivity to transit and active transportation networks both within and between municipalities in the GTHA; and c) seek the use of more social media tools and real-time information to facilitate user participation and parking availability to enhance the effectiveness of carpool programs; 12. Staff identifies that the potential implications of emerging technologies on the Region's transportation system may include: a) opportunities to adapt existing infrastructure to improve mobility options, such as taking away a vehicular lane and reallocating it for cyclist and pedestrians; b) continued transformation and impacts to industry, labour, and consumer behaviour, and the resulting changes in travel patterns; Report PLN 12-20 July 13, 2020 Subject: The Municipal Comprehensive Review of the Durham Regional Official Plan Page 3 c) increased demand for secure, reliable and widespread broadband infrastructure across the Region so that the many technologies (such as on -demand travel options for Uber or Lyft, car and bike sharing, etc.) are available to all; d) reduced individual auto use and ownership, and decreased share of transit users as users take advantage of the increase in fast, flexible, and convenient mobility options; e) an increasing need for well connected and integrated physical transportation infrastructure so that users can easily transfer between transportation services and modes; and f) increased disparity between lower and higher income communities, as many of the emerging technologies may be more expensive than traditional public transportation (since they require the use of a smart phone and internet connection); 13. Staff recommends that, in addition to supporting the Regional economic role of the ports, the Regional Official Plan also include a policy about the importance of maintaining the safety, security, and environmental protection of these waterfront employment lands to ensure the long-term use of the lands and future expansions or redevelopment, as necessary; 14. Staff recommends that supporting the Strategic Goods Movement while preserving a complete streets approach include design standards that not only best manage the movement of goods (e.g., implementing street elements for loading and deliveries, traffic calming, off -hour delivery programs), but also supports Durham Vision Zero to mitigate pedestrian/cyclist and freight conflicts; 15. Staff suggests the Region consider introducing an electric mobility strategy in relation to infrastructure, land use, and goods movement strategies as part of the Transportation System; 16. The Region is requested to assist Pickering in: a) working with VIA Rail and Metrolinx to implement high frequency service on the CPR Havelock rail line; and b) identifying the appropriate location for a VIA Rail station along the CPR Havelock rail line within, or in proximity, to the Federal Pickering Lands as part of the transportation system component of Envision Durham; and 17. The Region is requested to support Pickering's interest in establishing a VIA Rail stop at the Pickering GO Station to help increase higher order transit connections to and from the Region. Executive Summary: On October 1, 2019, the Regional Municipality of Durham released the Transportation System Discussion Paper, the fifth in a series of discussion papers to be released as part of "Envision Durham" — The Municipal Comprehensive Review of the Regional Official Plan. Comments were requested by December 30, 2019. City staff informed Regional staff that we were unable to meet their deadline. Report PLN 12-20 July 13, 2020 Subject: The Municipal Comprehensive Review of the Durham Regional Official Plan Page 4 Financial Implications: The recommendations of this report do not present any financial implications. 1. Purpose The purpose of this report is to obtain Council's approval of staff's recommendations to the Region of Durham, on the Transportation Discussion Paper. Appendix I contains the comments and recommendations on the Discussion Paper. 2. "Envision Durham" — The Municipal Comprehensive Review of the Durham Regional Official Plan An Official Plan provides a vision for the future orderly development of a municipality through a set of policies and maps. The Planning Act, which is provincial legislation governing land use planning in Ontario, requires that a municipality regularly review and update its Official Plan. With this in mind, the Region is reviewing the Durham Regional Official Plan. Once the Region has completed its Official Plan review, the City will be in a position to review the Pickering Official Plan. The first stage of the Region's Official Plan Review focuses on public engagement, and includes the preparation of a series of discussion papers. These discussion papers address the following major areas: agriculture and rural systems; climate change and sustainability; growth management; the environment and greenlands system; transportation system; and housing; (see Overview of the Region of Durham's Municipal Comprehensive Review of its Official Plan, Attachment #1). 3. The Transportation System Discussion Paper The Region has released the fifth of its discussion papers, Transportation System. The paper provides observations about transportation trends within Durham and the Greater Toronto and Hamilton Area (GTHA) and the background of the current provincial and regional policy context. Further, the paper provides an overview and discussion of numerous transportation related land use planning and policy matters, including: transit oriented/supportive development; public transit; active transportation; roads and corridor protection; travel choices; and goods movement. The paper can be found online at: https://www.durham.ca/en/doing- business/resources/Documents/PlanningandDevelopment/2019-P-41-Envision-Durham- Transportation-System-Discussion-Paper-CR-and-Attachment-1.pdf 4. Staff Comments The paper poses 16 questions for discussion. City staff have undertaken a detailed review of the Transportation System Discussion Paper (see Appendix I), and the response to the questions form the recommendations of this Report. Report PLN 12-20 July 13, 2020 Subject: The Municipal Comprehensive Review of the Durham Regional Official Plan Page 5 Appendix Appendix I Staff Review of the Transportation System Discussion Paper Attachment 1. Overview of the Region of Durham's Municipal Comprehensive Review of its Official Plan Prepared By: oris Ho, MCIP, RPP Planner I Dean Jacobs, MCIP, RPP Manager, Policy & Geomatics DJ:CR:Id Approved/Endorsed By: Catherine Rose, MCIP, RPP Chief Planner Kyle Bentley, P. ng. Director, City Development & CBO Recommended for the consideration of Pickering City Council Marisa Carpino, M.A. Interim Chief Administrative Officer Appendix 1 to Report PLN 12-20 Staff Review of the Transportation System Discussion Paper Staff Review of the Transportation System Discussion Paper 1. Questions for Consideration On October 1, 2019, the Region, as part of the second stage ("Discuss") of their public engagement program, released the Transportation System Discussion Paper (the Paper), the fifth in a series of discussion papers to be released as part of "Envision Durham". The Paper provides an overview of the current provincial and Regional policy framework related to transportation planning; highlights key travel trends for Durham residents and their impacts on the Transportation System; outlines new provincial and Regional policy requirements and directions; and identifies preliminary approaches to update the Region's transportation system. The Paper also poses a number of questions to leverage discussion and feedback, including: 1. Beyond "In Delivery" and "In Development" transit projects, which projects do you feel will have the greatest benefit to increase transit use and promote transit supportive development in Durham? 2. Should the Region only designate Regional corridors adjacent to the High Frequency Transit Network? 3. Should Transit Oriented Development policies and guidelines for Strategic Growth Areas be tailored to the planned level of transit service? 4. Do you support Major Transit Station Areas having specific transportation -related policies to support their development as Transit Oriented Development places, similar to those already applied to Regional Centres? 5. What up -front considerations should the Regional Official Plan provide with respect to transit supportive development outside of Strategic Growth Areas? 6. Do you support a new Transit Hub designation and policies as part of the Regional Official Plan? 7. How can Regional Official Plan policies support planning for all road users when assessing new developments and reconstructing or building new roads? 8. How should the Regional Official Plan recognize or plan for enhanced trail connections as key active transportation linkages within hydro corridors and Waterfront Areas? 9. Would providing clearer future right-of-way requirements for specific sections of arterial roads in the Regional Official Plan be beneficial for development application review or Class Environmental Assessment studies? 10. Is it appropriate that the Regional Official Plan address an integrated Class Environmental Assessment and Planning Act process in new growth areas to optimize the alignment and design for arterial roads? 11. Are there aspects of Transportation Demand Management beyond employer and school trips, and review of development applications, that should be addressed in greater detail in the Regional Official Plan? Staff Review of the Transportation System Discussion Paper Page 2 of 14 12. What should the Region's role be in supporting carpooling, and in what locations would this be most appropriate? 13. What are the potential implications of emerging technologies on the Regional Transportation System? 14. How should the Regional Official Plan be enhanced to better support the role of ports to the regional economy, such as the Port of Oshawa and the St. Marys Cement dock facility? 15. What should the Region consider in supporting the Strategic Goods Movement Network while preserving a complete streets approach for all road users? 16. Have we missed any trends that you feel should be reviewed and considered in the Transportation System context as part of Envision Durham? This Discussion Paper, through Envision Durham, is focusing on those actions and recommendations of Durham's Transportation Master Plan (TMP) (see section 5.3 of this Appendix) that have broad implications on land use and design aspects of the Regional Official Plan (ROP), particularly through the Growth Management Study work and additional review of the Transportation System. Questions for discussion and feedback will help further articulate the vision of the TMP and how it can be better integrated with land use change and development. The following sections provide a high level overview of the Paper, and provide comments and responses to the questions posed with recommendations highlighted in bold on matters that should also be addressed through the Municipal Comprehensive Review. 2. Transportation Trends in Durham The Paper identifies some of the transportation trends and observations in Durham compared to the Greater Toronto and Hamilton Area (GTHA) over the last decade. During this period, both population and employment have grown in Durham resulting in an increased number of trips during the weekday. Increase in travel demand has facilitated growth of the transportation system but also contributed to increased congestion and travel delays. Some of the key commuting and travel patterns are: • Durham Region Transit (DRT) ridership has increased from 6.94 million passengers in 2006 to 10.26 million passengers in 2016. • Out -commuting by Durham residents to locations of employment outside the Region has increased, mostly to Toronto and York Region. • The 2016 Census revealed Durham residents had the longest average commute of 35 minutes, compared to other upper -and single -tier municipalities in the GTHA. • Durham residents who took public transit as their primary mode of travel had the longest average commute time of 62.5 minutes (largely accounted by GO train trips) compared to other GTHA municipalities. • Elementary and secondary school travel by active modes or public transit are declining while auto trips are increasing, which is generally consistent with trends across the GTHA. Staff Review of the Transportation System Discussion Paper Page 3 of 14 • Public transit represented about 11 percent of morning peak period work trips made by Durham residents compared to 10 percent in 2006, and is forecasted to reach 20 percent by 2031. • The percentage of Durham residents staying in Durham to work is expected to rebound from 48 percent in 2016 to 58 percent in 2031. • Pickering has the highest share of travelers arriving at the GO Station by walking or cycling (8 percent) compared to travelers by the same modes to other GO Stations within Durham. 3. Transportation Infrastructure Expansion Travel demand has consistently increased since 2006. Accordingly, DRT, Metrolinx, and the Province of Ontario have completed expansions to the road network, the addition of commuter parking facilities, and enhancements of public transit services within the Region. The most significant additions to the provincial highway network have been the extension of Highway 407 from Brock Road in Pickering to Highway 35/115 in Clarington, and the construction of Highways 412 and 418 in Whitby and Clarington respectively. In 2018, there was approximately 50 km of cycling facilities on Regional road rights-of-way. Enhancements, such as boulevard multi -use paths and paved shoulder bike lanes, were added during the last several years. In Pickering and Ajax, buffered bike lanes on sections of Kingston Road were constructed as part of the initial phasing of the Highway 2 Bus Rapid Transit (BRT) (i.e., frequent bus service between downtown Oshawa and Scarborough City Centre). Multiple key transit expansion and infrastructure initiatives have been implemented since 2006, including service expansion along the GO Lakeshore East rail line and the launch of the BRT lanes along Kingston Road for the Pulse 900 Highway 2 service. As of year-end 2018, annual ridership on the Pulse 900 Highway 2 service was almost three million passengers. 4. Provincial Policy for Transportation Planning Through Envision Durham, multiple provincial and regional transportation -related plans are being reviewed. These plans include: the Provincial Policy Statement (2020); A Growth Plan for the Greater Golden Horseshoe, which identifies Priority Transit Corridors; Metrolinx's Regional Transportation Plan, which identifies a Frequent Rapid Transit Network; Metrolinx's Mobility Hub Guidelines; the Ministry of Transportation's (MTO) Greater Golden Horseshoe Transportation Plan, which will incorporate transit and other transportation networks included in the Metrolinx Plan; MTO's Transit -Supportive Guidelines; and MTO's Freight -Supportive Guidelines. These plans and guidelines provide policies and direction on the planning and development of transportation infrastructure, corridors, and networks for the movement of pedestrians, vehicles, goods, and the integration of transportation planning with land use. Staff Review of the Transportation System Discussion Paper Page 4 of 14 Metrolinx has identified Frequent Rapid Transit Network projects across the GTHA that are either "In Delivery" (i.e., projects in the engineering design stage or under construction) or "In Development" (i.e., projects in advance stages of planning and design). In Durham Region, Metrolinx introduced 2 "In Delivery" transit projects — the GO Rail 15 -minute Two -Way All -Day service along the Lakeshore East GO line to Oshawa, and peak two-way 15 minute service on the Lakeshore East GO Rail extension to Bowmanville (subject to the alignment being confirmed). The Durham -Scarborough BRT along Highway 2/Kingston Road is identified as an "In Development" project within Durham Region. In response to Question 1, beyond the "In Delivery" and "In Development" transit projects noted above, City staff identifies that the following transit projects would assist in attracting transit riders and transit supportive development: a) the establishment of the Whites Road Priority Bus, extending from the Pickering GO Station along Bayly Street to Whites Road to Highway 7 (and providing connections to lands in Seaton designated high density residential and Community Node, and to lands in the Seaton Innovation Corridor); b) the implementation of light rail transit along Kingston Road; and c) the extension of GO rail service to Seaton. 5. Regional Policy for Transportation Planning The Discussion Paper provides an outline of the Regional policy plans, guidelines, and strategies that apply to Durham's transportation system. These policy documents provide direction for infrastructure needs, design requirements, transit service, and programs to support the growth and development of communities through the efficient movement of people and goods. Through Envision Durham, the various policy documents will be reviewed for the consideration of incorporating or strengthening transportation policies into the ROP. 5.1 Durham Region Strategic Plan Durham's current Strategic Plan, 2015-2019, supports goals and strategies that transportation planning fulfill in the vision for growth and development in various communities across the Region. A new Strategic Plan is in the process of being developed. Its directions will be considered and incorporated into the ROP through Envision Durham. 5.2 Durham Regional Official Plan The Transportation System comprises one of the primary components of the ROP, with the Urban System, Greenlands System, and the Rural System being the other three. The Transportation System of the ROP contains specific designations for existing and planned facilities, as follows: • Road Network — consisting of freeways and a hierarchy of roads, currently referred to as Type A, B and C Arterials; • Transit Priority Network — with freeways, arterial road transit corridors, and commuter rail lines; and • Strategic Goods Movement Network — including roads, railways, airports and ports. Staff Review of the Transportation System Discussion Paper Page 5 of 14 The designations are shown on a series of maps in Schedule 'C' of the ROP. The ROP has supporting policies for these network elements, and for active transportation related to pedestrian connectivity and cycling/trail facilities. Additionally, the ROP contains transportation related policies supporting the development of healthy and complete communities, and the various components of the Urban System. 5.3 Durham Transportation Master Plan In December 2017, Regional Council endorsed Durham's TMP, which defines the Region's transportation needs to 2031 and beyond. Regional Council adopted Amendment #171 to the ROP in June 2018 to implement key transportation network recommendations and supporting policies made in the TMP. The Durham TMP supports planned growth and development consistent with the current ROP, and contains a multi -modal approach in its recommendations and actions reflecting "complete streets" principles. The TMP provides a foundation for the Envision Durham review of the Transportation System. 5.4 Regional Cycling Plan and Regional Trail Network The Regional Cycling Plan, approved by Regional Council in 2012, provides direction for a Region -wide cycling network through recommendations for planning, design, and implementation. A Primary Cycling Network was implemented in 2012, comprising existing and planned cycling facilities that connect major centres, destinations, GO Stations and other transit hubs, and external municipalities (e.g., Toronto) on arterial roads. The Cycling Plan also recognizes a Regional Trail Network and local routes defined by area municipal active transportation plans or within TMP's. The Regional Trail Network identifies existing off-road public trails throughout Durham, including inter -regional routes such as the Waterfront Trail and The Great Trail (formerly the Trans Canada Trail), and proposed or desired linkages. An update to the Cycling Plan commenced in early 2020. It will review the Cycling Network in the context of area municipal and other provincial and regional plans for the implementation of cycling routes and facilities. The City of Pickering's Integrated Transportation Master Plan, which is nearing completion, will include recommendations and plans regarding active transportation to build upon and complement the Region's TMP. 5.4 Arterial Corridor Guidelines Durham's Arterial Corridor Guidelines, approved by Regional Council in 2007, are a set of potential strategies and common reference points to be applied when planning and designing arterial roads in the Region. The guidelines provide design criteria for arterial rights-of-way to help balance mobility and access. The Durham TMP recommended an update to the Arterial Corridor Guidelines to contemporize the criteria to reflect "complete streets" principles for road, cycling, and transit facility design standards and guidelines. Staff Review of the Transportation System Discussion Paper Page 6 of 14 5.5 Durham Region Transit Strategy DRT completed a Five -Year Service Strategy in 2016. The Strategy's objective is to grow ridership throughout Durham via service improvements and service expansions to new neighbourhoods and developments. The Strategy's High Frequency Transit Network, terminals and stations, form the basis for further infrastructure investments. An update to the Five -Year Service Strategy was planned for early 2020. 6.0 Policy Considerations The following six themes provide the framework for analyzing the transportation system as part of Envision Durham: • Land use and transportation • Public transit • Active transportation • Roads and corridor protection • Travel choices • Goods movement 6.1 Land Use and Transportation The ROP contains a series of policies that supports the integration of land use and transportation as part of the Regional structure. As noted in section 5.2 above, the Transit Priority Network is one of the three components of the ROP's Transportation System. The Transit Priority Network operates on freeways, arterial roads, and commuter rail. Focusing on the role of arterial roads, the Region had further classified arterials that contribute to the Transit Priority System, as follows: • Rapid Transit Spines have dedicated transit lanes in most sections that intersect with local transit services. In Durham, Kingston Road/Highway 2 from Pickering to Highway 418, and Simoce Street from Bayly Street to Highway 7, are Rapid Transit Spines; • High Frequency Transit Network consists of buses in planned High Occupancy Vehicle (HOV) lanes, or buses in mixed traffic, with transit signal priority at major intersections. Planned HOV lanes may be converted to dedicated bus lanes as growth in ridership warrants. Most Type A and B Arterial roads in the urban area of Durham are identified as part of the High Frequency Network; and • Other Transit Connections facilitate longer distance trips, providing direct links to transportation hubs and commuter stations from smaller urban and rural areas. Lands designated `Regional Corridor' are to be planned as higher density, mixed use areas, supporting higher order transit service and with an extensive pedestrian network. With the recent updates to the ROP arising from Amendment #171, certain arterial roads were identified to be part of the High Frequency Transit Network. However, not all roads identified as part of the High Frequency Transit Network have a Regional Corridor designation adjacent to them, and some roads that are not part of the High Frequency Network do have Regional Corridors designated next to them. The Region is asking for input on how this mismatch should be addressed. Staff Review of the Transportation System Discussion Paper Page 7 of 14 In response to Question 2, in addition to maintaining the Regional Corridor land use designation adjacent to Rapid Transit Spines, staff recommends that the Region only designate Regional Corridors adjacent to the arterial road corridors that are part of the High Frequency Transit Network. 7.2 Transit -Oriented Development Transit Oriented Development (TOD), or as the Province is now calling it, "Transit Oriented Communities", is the clustering of high density, compact, mixed use development that supports transit ridership and pedestrian access to transit infrastructure. In order to support TOD, the Region's TMP recommends the development of TOD guidelines and enabling policies in the ROP to ensure Strategic Growth Areas (SGA) (such as locations next to a GO Station) develop as TOD places in the near and long-term. A TOD Strategy was drafted as part of the Durham Long -Term Transit Strategy Study. Although the Strategy is not officially approved by Regional Council, it is used as a resource for development application review and other projects. Through Envision Durham, an update to the TOD Strategy is being considered to articulate TOD policies and practices for new development. The Growth Plan requires the area around Major Transit Station Areas (MTSAs) (such as Pickering's GO Station), to be planned as areas that will achieve a higher density mix of uses within an approximate 500 to 800 metre radius of a transit station (approximately 10 minute walk). MTSAs are to be supported by TOD in the immediate surrounding area, but TOD places may also become destinations themselves if, for example, they also provide a hub of office jobs. Ideally, a Major Transit Station Area becomes both an origin and a destination In response to Question 3, staff recommends that TOD policies and guidelines for SGA be tailored to the planned level of transit service, providing there is sufficient flexibility at the area municipal level to respect the local context of the specific SGA. From a transportation perspective, MTSAs are intended to become areas where transit, active transportation and vehicular access is in high demand due to the transit station. Supporting development of the MTSAs will require a review of the Region's current approaches for planning new intersections, accesses and active connections to these areas. In response to Question 4, staff supports the development of strategic and transportation -related policies in furtherance of TOD in Major Transit Station Areas, similar to those currently applied to Regional Centres. These include establishing a grid network of roads, and using design that favours pedestrian traffic and public transit with direct street pedestrian access to buildings, provision of potential transit, and parking areas sited at the rear or within buildings. While "Transit Oriented Development" and "transit -supportive development" are similar in concept, the latter is generally applied to areas outside of Strategic Growth Areas that are not planned as areas of significant intensification. The objective of the design strategies is to increase the number of residents (or businesses) that can reach a transit route stop in 5 to 10 minutes. These design strategies include connectivity between neighbourhoods, walkways, a grid road pattern, and restricting lots from backing onto a road. Staff Review of the Transportation System Discussion Paper Page 8 of 14 City staff notes that transit -supportive development requires both supportive land use patterns and the effective delivery of transit services. As noted above, the objective is to increase the number of users who can reach a transit stop in 5 to 10 minutes. However, traffic signal spacing on arterial roads is optimized for traffic progression. This conflicts with conveniently spaced traffic signals for pedestrian crossing. In response to Question 5, staff advises that a key issue that needs to be addressed to increase ridership from transit -supportive development is to allow closer traffic signal spacing to facilitate pedestrian crossings. 7.3 Public Transit Through Envision Durham, the relationship between transportation and land use is intended to be strengthened. There will be an emphasis on public transit supporting intensification in Strategic Growth Areas, specifically at Transportation Hubs and Commuter Stations, where transfers between different transfer routes and/or services take place. Currently, the Region's TMP and DRT's Five-year Service Strategy identifies 11 existing and proposed transit stations and terminal locations. These locations, if designated in the ROP, could be supported by policies emphasizing active transportation connectivity, passenger amenities, and prioritizing buses to and from these sites enhancing the first —last mile experience. Within the City of Pickering, the TMP currently identifies the Pickering GO Train Station as a Transportation Hub, and a future GO Train Station in Seaton west of Brock Road on the CPR Belleville line as Commuter Station. In response to Question 6, staff supports the designation of additional Transit Hubs in the ROP, corresponding with designated or future Urban Growth Centres, Regional Centres, or Major Transit Station Area, and providing there is sufficient flexibility at the area municipal level to respect the local context of the specific location. 7.4 GO Lakeshore East Extension The Paper summarizes recent updates to the GO Lakeshore East Extension, including a proposed future train service to Bowmanville to be completed by fall 2024. Metrolinx is re-examining the previously approved alignment of the train service to Bowmanville. The previously approved alignment, which results in the stations being located along the CP Rail line in Living Areas/Centre designations, provides the most opportunity for intensification at station locations in accordance with ROP policies and vision. 7.5 407 Transitway The Province is planning a 407 Transitway, which is a high-speed public transit facility on a separate right-of-way within the Highway 407 corridor. Highways 407, 412 and 418 are currently designated in the ROP as Freeway Transit routes in the Transit Priority Network schedule. Through Envision Durham, there is the opportunity to elevate the importance of the 407 Transitway as a future BRT or Light Rail Transit facility and connection to York Region, the planned Pearson Transit Hub, and to serve a future airport and employment lands in Pickering. Staff Review of the Transportation System Discussion Paper Page 9 of 14 7.6 Active Transportation The ROP currently supports active transportation through a wide range of mobility options, including walking and cycling, and ensuring an integrated, safe, efficient, and reliable Transportation System. The Durham TMP recommends adopting a Multi -modal Level of Service to accommodate all road users through a comprehensive consideration of road design and rights-of-way for road expansion or reconstruction projects. In response to Question 7, staff advises that when assessing new development, and reconstructing or building new public roads, new ROP policies that would better support planning for all road users include: a) policies indicating that a "complete street" includes the provision of sidewalks/multi use paths, boulevard planting and street lighting, and that it is a Regional responsibility to provide the pedestrian/cycling, planting and street lighting components of a complete street on Regional roads; b) policies allowing closer entrance and intersection spacing along arterials; and c) policies allowing closer traffic signal spacing along arterials to assist pedestrian crossings, and in keeping with of transit -supportive development. Cycling and Trails Durham's Primary Cycling Network in the Regional Cycling Plan is part of a broader network consisting of the Provincial Cycling Network, Metrolinx's Regional Transportation Plan cycling network for the GTHA, and networks developed by Durham area municipalities. Several initiatives have commenced to support cycling infrastructure such as, the Short -Term Cycling Network (i.e., cycling facilities to be constructed within the next 10 years), and proposed cycling projects identified within the Region's capital road program and 9 -year forecast. The importance of offering a variety of mobility choices is highlighted by 78 percent of respondents of the Envision Durham public opinion survey who think it is "very" to "extremely important". Despite public opinion of the importance of mobility choices including cycling, the Paper indicates the lack of direction from the ROP with respect to monitoring and promoting cycling within Durham. Support for documenting the progress of new infrastructure, programs, and services is a valuable component for long-term sustainable growth of cycling. The Regional Trail Network is a component of the Region's active transportation system and includes making connections between publicly owned lands, such as parks, conservations areas, open space lands, and right-of-ways, and hydro corridors. The Waterfront Trail (on Lake Ontario) and Waterfront Areas (on Lake Scugog and Lake Simcoe) are key components of the Regional Trail Network, and connecting northern parts of the Region to the GTHA. In response to Question 8, staff advises that the ROP could recognize or plan for enhanced trail connections through areas such as hydro corridors, by including: a) an informational map in the ROP showing existing cycling and pedestrian trail networks, identifying gaps and opportunities; and Staff Review of the Transportation System Discussion Paper Page 10 of 14 b) a policy encouraging stakeholders (such as the area municipalities, conservation authorities, cycling and trail associations and committees, etc.) to collaborate with the Region to pursue new cycling/trail connections. Roads and Corridors The Region's TMP recommends a right-of-way map be added to the ROP identifying the required right-of-way widths for Type A, B and C Arterials based on the ultimate widening needs for arterial road sections, and for the purpose of future Class Environmental Assessment (EA) studies and review of development proposals. The right-of-way would be determined based on a multiple factors such as auxiliary lanes, transit and cycling facilities, potential stormwater management measures, and provincial studies. In response to Question 9, staff supports incorporating into the ROP future right-of-way width requirements for specific segments of arterial roads, particularly those sections within or adjacent to Strategic Growth Areas, as this may assist with development application review and Class Environmental Assessments (Class EA). Protection of future arterial road corridors is essential and the TMP recommends feasibility studies for road links in which engineering or environmental impacts may affect their potential construction. The Province is reviewing the Environmental Assessment Act to streamline requirements to implement an integrated Planning Act and Class EA for a comprehensive review of new arterials in new growth areas. The Region will consider policies for this integrated process applicable to new growth areas. In response to Question 10, staff advise that it is appropriate that the ROP address using an integrated Class EA and Planning Act process in new growth areas to optimize the alignment and design of arterial roads as the combined processes would allow for a comprehensive evaluation, reduce duplication in meeting Provincial requirements, and expedite development. The Region supports programs and initiatives that adapt road infrastructure to climate change and mitigate the impacts of climate change on Regional roads, such as through the Durham Community Climate Adaptation Plan; the use of low impact development storm water management techniques; developing complete communities; and implementing Transportation Demand Management to reduce auto congestion and greenhouse gas emissions. The Region intends to reinforce the goals and actions to reduce auto trips and mitigate impacts from climate change. 8. Transportation Demand Management The ROP supports implementing the TMP, which includes recommending the establishment of trip reduction strategies and creating more travel choices in the Transportation System. New technological advances are also emerging and transforming transportation modes, travel patterns, and trip information. Staff Review of the Transportation System Discussion Paper Page 11 of 14 8.1 School and Employer Trips The ROP supports implementing Transportation Demand Management programs and strategies to reduce trips, such as carpooling, high occupancy vehicle lanes, telework, park-and-ride, and pedestrian and cycling facilities. There are opportunities through Envision Durham to strengthen Regional action and advocacy on Transportation Demand Management, and create more travel choices for those using the Transportation System. The Region has been operating Smart Commute Durham in partnership with Metrolinx since 2007. The program encourages employers to reduce dependency on motor vehicles through strategies, such as providing DRT passes, ridesharing and vanpooling programs, carpool spaces, alternative work hours, telecommuting, and developing facilities that supports cycling. Metrolinx withdrew its participation from the Smart Commute program in 2019. Through Envision Durham, there are multiple strategies that could be developed to advance the mandate of supporting Transportation Demand Management. The Region's TMP recommends that: 1. Transportation Demand Management development guidelines be developed to ensure that a rigorous and consistent review of new developments support active transportation; 2. A parking strategy be developed to identify areas to optimize parking to support transit and non -automobile travel; and 3. Active school transportation portfolio be developed to encourage student travel to school via active transportation. Question 11 asks if there are aspects of Transportation Demand Management beyond employer and school trips, and review of development applications that should be addressed in greater detail in the ROP. In response, staff has no further comments. Through Envision Durham, the Region will consider the opportunity to further develop the Region's role in the provision of carpool spaces. With regards to Question 12, and the Region continuing its support for carpooling, staff recommends the Region a) play a larger role in the provision of purpose-built commuter lots beyond the Small Urban and Rural Carpool Lot Program to implement commuter lots along major arterial roads and highways; b) continue its role engaging with area municipalities and businesses to promote carpooling programs in key destinations that provide connectivity to transit and active transportation networks both within and between municipalities in the GTHA; and c) seek the use of more social media tools and real-time information to facilitate user participation and parking availability to enhance the effectiveness of carpool programs. Staff Review of the Transportation System Discussion Paper Page 12 of 14 8.2 Age -Friendly Communities The Region's Age -Friendly Durham Strategy and Action Plan (2017) is a series of actions focused on enhancing transportation infrastructure and services for adults aged 55 and older, and addressing gaps to improve the transit passenger experience. The Action Plan emphasizes active transportation options, as the tendency is for fewer seniors to drive than other adults. Through Envision Durham, the Region will be reviewing age -friendly communities and the promotion of active transportation for all users from a broader active transportation perspective. 8.3 Emerging Transportation Technologies Recent technological advances in transportation such as paid ridesharing services (e.g., Uber, Lyft) are transforming travel. The emergence of the "sharing economy" has created "Mobility as -a -Service", which includes paid ridesharing, bike sharing and car sharing, which enables access to on -demand travel without owning a vehicle. Technological advances are enabling access to travel information and provide real-time traffic or construction information. Other emerging technologies transforming transportation include electric vehicles, automated vehicles, and connected vehicles that have the potential to significantly change travel by optimizing the operation and interaction of vehicles within the road network. At the same time, the performance of these technologies and their impacts are uncertain as well as consumer responses, which will require monitoring as the technologies are deployed. In response to Question 13, staff identifies that the potential implications of emerging technologies on the Region's transportation system may include: a) opportunities to adapt existing infrastructure to improve mobility options, such as taking away a vehicular lane and reallocating it for cyclist and pedestrians; b) continued transformation and impacts to industry, labour, and consumer behaviour, and the resulting changes in travel patterns; c) increased demand for secure, reliable and widespread broadband infrastructure across the Region so that the many technologies (such as on -demand travel options for Uber or Lyft, car and bike sharing, etc.) are available to all; d) reduced individual auto use and ownership, and decreased share of transit users as users take advantage of the increase in fast, flexible, and convenient mobility options; e) an increasing need for well connected and integrated physical transportation infrastructure so that users can easily transfer between transportation services and modes; and f) increased disparity between lower and higher income communities, as many of the emerging technologies may be more expensive than traditional public transportation (since they require the use of a smart phone and internet connection). Staff Review of the Transportation System Discussion Paper Page 13 of 14 9. Goods Movement The ROP includes the Region's Strategic Goods Movement Network that identifies preferred haul routes for commercial vehicles, which is inherently linked to employment, retail, and residential lands as home deliveries are increasingly supporting truck traffic. The two ports in Durham — Port of Oshawa and the St. Marys Cement dock (in Clarington), provides valuable economic activity for the Region. Both the Strategic Goods Movement Network and the Transportation Master Plan identify St. Marys Cement dock as a future harbour. In response to Question 14, staff recommends that, in addition to supporting the Regional economic role of the ports, the ROP also include a policy about the importance of maintaining the safety, security, and environmental protection of these waterfront employment lands to ensure the long-term use of the lands and future expansions or redevelopment, as necessary. 9.1 Federal Airport Site The ROP designates the federal airport lands in Pickering in anticipation of an airport, and recognizes it as part of the Transportation System. The airport would be well connected to Highway 407 via Brock Road and the Whites Road extension, the 407 Transitway and the CP Havelock rail line. The airport lands are recognized for their potential as a strategic goods movement centre to handle air cargo and support the development of an employment cluster, which could include Seaton employment area lands (Innovation Corridor). 9.2 Traffic Management Guideline for Hamlets In 2014, a Traffic Management Guideline for Hamlets was released by the Region to provide guidance on the process and techniques to address traffic concerns on Regional roads within hamlets and smaller urban areas. Approaches to address issues include education, enforcement and engineering solutions, similar to the Region's Vision Zero Strategic Road Safety Action Plan. The guideline will be considered part of the Arterial Corridor Guidelines update, and the mitigating impacts from goods movement in hamlets and small urban areas will be further reviewed through Envision Durham. The Region notes that supporting the Strategic Goods Movement Network, while mitigating traffic impact from goods movement in hamlets and small urban areas is a delicate balance. The Region will be reviewing this further through Envision Durham. In response to Question 15, staff recommends supporting the Strategic Goods Movement while preserving a complete streets approach include design standards that not only best manage the movement of goods (e.g., implementing street elements for loading and deliveries, traffic calming, off -hour delivery programs), but also supports Durham Vision Zero to mitigate pedestrian/cyclist and freight conflicts. Staff Review of the Transportation System Discussion Paper Page 14 of 14 Question 16 asks if there are any other trends or issues that the Region should review and consider. City staff notes that with the increase of personal electric vehicles, the future emergence of electric commercial long haul vehicles or more immediate opportunities to use electric delivery cargo trucks or cargo bikes for first and last mile deliveries will require continuous monitoring and examination to optimize the benefits of these technologies. Additionally, although delivery drones are still being experimented as a viable option for ground-based delivery, drones have the potential to significantly redefine and influence the goods movement network, and would require the implementation of infrastructure and drone traffic management systems to accommodate such technology. In response to Question 16, staff suggests the Region consider introducing an electric mobility strategy in relation to infrastructure, land use, and goods movement strategies as part of the Transportation System. On October 10, 2017, Pickering Council passed Resolution #355/17, which among other matters, resolved "That Council request VIA Rail Canada and Metrolinx to move forward with identifying, planning and implementing high frequency rail service on the CP Havelock rail corridor, which in turn will help attract key investment to the Pickering Innovation Corridor and the Federal Pickering Lands; and that the appropriate Environmental Assessment (EA) process for high frequency rail service on the CP Havelock rail corridor commence no later than September 30, 2018; ...". Also in response to Question 16, the Region is requested to assist Pickering in: a) working with VIA Rail and Metrolinx to implement high frequency service on the CPR Havelock rail line; and b) identifying the appropriate location for an VIA Rail station along the CPR Havelock rail line within, or in proximity, to the Federal Pickering Lands as part of the transportation system component of Envision Durham. There have also been a number of meetings between senior City staff and representatives from VIA Rail regarding the establishment of a VIA Rail stop at the Pickering GO Station, in conjunction with the implementation of high frequency service. Such a stop would increase the number of higher order transit connections to and from Durham Region. Lastly, in response to Question 16, the Region is requested to support Pickering's interest in establishing a VIA Rail stop at the Pickering GO Station to help increase higher order transit connections to and from the Region. 10. Next Steps The above review provides a synopsis of the Region's Transportation System Discussion Paper, provides responses to the questions posed for discussion and feedback, and highlights key issues, which in the opinion of staff, should be considered through the Municipal Comprehensive Review process. Attachment #1 to Report #PLN 12-20 Overview of the Region of Durham's Municipal Comprehensive Review of its Official Plan 1. Background The Planning Act requires that municipal official plans be reviewed every five years to ensure that the plans have regard to matters of Provincial interest, are consistent with Provincial Policy Statement (PPS), and conform to Provincial Land Use Plans. The current Durham Regional Official Plan (ROP) was approved in 1993 and has over 150 amendments to keep it up-to-date with changing provincial plans and policies. On May 2, 2018, Regional Council authorized staff to proceed with the Municipal Comprehensive Review (MCR) of the ROP titled "Envision Durham, 2041 Our Region, Our Plan, Our Future" (or "Envision Durham"). "Envision Durham" offers a strategic opportunity to create a completely new plan with an advanced planning vision for the Region to 2041. 1.1 What are the key components of the Region's MCR? The MCR is structured around the following strategic planning themes: • The Agriculture and Rural System (Discussion Paper released March 5, 2019; Pickering Council commented through Council Resolution #94/19, dated May 27, 2019); • Climate Change and Sustainability (Discussion Paper released May 7, 2019; Pickering Council commented through Council Resolution #150/19, dated October 21, 2019); • Growth Management (Urban System Discussion Paper released June 4, 2019; Pickering Council commented through Council Resolution #205/19, dated December 16, 2019); • Environment and Greenlands System (released September 3, 2019; subject of Report PLN 04-20; Pickering Council commented through Resolution #257/20, dated March 23, 2020; • Housing (Discussion Paper released December 3, 2019; to be considered at the June 29, 2020 Council meeting); and • Transportation System (released October 1, 2019; subject of this Report; to be considered at the July 13, 2020 Planning & Development Committee, and July 27, 2020 Council meeting). 1.2 The MCR and Public Engagement The public engagement program and its timeline associated with the MCR consists of four stages: Discover (2019), Discuss (2019), Direct (2020), and Draft (2021-2022). On February 5, 2019, the Region initiated the first stage ("Discover") of the "Envision Durham" public engagement program by launching the project website: durham.ca/Envision Durham, as well as a public opinion survey, which closed on April 6, 2019. The Region also created an introductory video on the project, which can be viewed on the project website. In addition, the Region set up "pop-up" information kiosks in various locations, as part of their public engagement launch. In accordance with the public engagement program, each stage of the project will be promoted through news releases, the project website, social media platforms, and public service announcements.