HomeMy WebLinkAboutPD 40-03
Citr¡ o~
REPORT TO
PLANNING COMMITTEE
11
Report Number: PD 40-03
Date: November 25, 2003
From:
Neil Carroll
Director, Planning & Development
Everett Buntsma
Director, Operations & Emergency Services
Subject:
Durham Region Transportation Master Plan
City of Pickering Comments on the Recommended Plan - October 2003
Recommendations:
1.
That the comments contained in Report PD 40-03 of the Director, Planning &
Development and the Director, Operations & Emergency Services, be
ENDORSED as the City's comments on the Durham Region Transportation
Master Plan: Recommended Plan - October 2003;
2.
That Regional Council be requested to AMEND the recommended
Transportation Master Plan, prior to the Plan's approval, as follows:
. on Figure 16 - Proposed Regional Road Expansion Projects (2004 - 2021),
which identifies road projects to be funded and constructed by the Region of
Durham up to 2021;
. add two north-south arterial roads connecting Taunton Road with the
proposed Highway 407 interchanges and Highway 7;
. delete the easterly diversion and separate bridge crossing of West Duffins
Creek for Whites Road, and replace it with a widening of the current
Whites Road alignment to Taunton Road and an expansion to the current
capacity of the Taunton Road bridge;
. update any related text and appendices as required;
3.
That Regional Council be requested to AMEND the recommended
Transportation Master Plan, prior to the Plan's approval, as follows:
. technical changes on Figure 16 - Proposed Regional Road Expansion
Projects (2004 - 2021), including;
. a more easterly realignment of the Brock Road by-pass of Brougham to
be consistent with the alignment identified in the draft Environmental
Assessment; and,
. a more easterly realignment of the Westney Road by-pass of Greenwood
consistent with the Pickering Official Plan;
12
Report PO 40-03
Date: November 25, 2003
Subject: Durham Region Recommended Transportation Master Plan
Page 2
. technical changes on Figure 13.2 - Freeway and Arterial Road Network,
which shows the ultimate road network, including;
. a more northerly alignment of the east-west Type C arterial crossing
Brock Road within the Duffin Heights Neighbourhood, to be consistent
with refinements in the approval of revision 1 to modification 1 to the
Pickering Official Plan; and,
. adjustment northerly of the shading used to identify urban areas to follow
the St. Lawrence & Hudson (formerly C.P. Belleville) rail line west of
Whites Road, to be consistent with Figure 16 and the current urban area
boundary in the Durham Regional Official Plan;
4.
That Regional Council be requested to ADDRESS funding for the north-south
arterial roads to be added to the Plan;
5.
That the City Clerk FORWARD a copy of Report PO 40-03 and Planning
Committee's decision the day after the Planning Committee meeting in order to
meet the Region's December 10 deadline for comments, and subsequently,
ADVISE the Region of Durham Council of Pickering Council's decision the day
after the City Council meeting in light of the Region's December 17, 2003,
Committee of the Whole and Council meeting.
Executive Summary: The Transportation Master Plan (TMP) is a strategic
planning document designed to identify the policies, programs and infrastructure
improvements required to address Durham's transportation needs for the next 20 years
and beyond. The TMP establishes a Transportation Vision for the year 2021, which
includes the key concepts of an integrated and balanced system, using a range of
transportation strategies to address mobility and goods movement of the community.
The vision recognizes that although the automobile will continue to be the dominant
mode of transportation, there will be a shift towards greater use of transit, pedestrian
and cycling facilities.
The TMP details three coordinated and comprehensive strategies as follows: providing
more travel choice; improving the road system; and mitigating environmental and
community effects. The TMP includes the following key components:
. a freeway and arterial road network;
. a transit priority network;
. a recommended regional road expansion program for 2004 to 2021;
. a regional road rehabilitation, reconstruction and replacement program
for 2004 to 2008; and,
. a recommended regional road intersection and corridor improvement
program 2004 to 2021.
Report PD 40-03
Date: November 25, 2003
13
Subject: Durham Region Recommended Transportation Master Plan
Page 3
The Region should be commended for completing this important document. However,
the recommended TMP has some significant omissions in the Region's program of road
expansions that directly affect Pickering, and that should be addressed prior to its
adoption.
Roads included in Durham's program are to be financed and constructed by the Region
(see Attachment #1). Roads not in this program, but shown as part of the ultimate
network (see Attachment #2), are to be financed and constructed by others, generally
through the development process.
Two north-south roads are required between Taunton Road and the Highway 407
interchanges proposed within the Seaton lands, and connecting to Highway 7.
Although these two north-south roads are shown on the ultimate network, they are not
shown as the Region's responsibility. Since the interchanges are to be constructed
within 10 years, there must be certainty that these roads be built in a timely manner, as
continuous linkages.
Regional staff advises that the projects included in their program to 2021 address the
technical traffic demand for north-south movement in Pickering. However, the
improvements are focused on Brock Road and Altona Road, rather than in a location to
serve the designated urban development. Roads internal to the Seaton lands will serve
as a catalyst for economic development along Highway 407, and provide needed
options for north-south movement for existing and future urban development. The
Region should add these projects to the TMP (Figure 16) and secure funding.
In light of the tight time lines for comment, Planning Committee's comments should be
provided to the Region immediately (to meet the December 10, 2003 deadline),
followed by City Council's comments, in time for consideration by Regional Committee
of the Whole and Regional Council on December 17,2003.
Financial Implications: No financial implications arise from providing comments on
the Recommended Durham Transportation Master Plan.
Background:
1.0
Introduction
1.1
A multi-departmental review of the Transportation Master Plan (TMP) has
been conducted.
This is a joint report from Planning & Development, and Operations & Emergency
Services (Municipal Property & Engineering), with input from the Corporate
Projects & Policy Division.
1.4
Report PO 40-03
Date: November 25, 2003
Subject: Durham Region Recommended Transportation Master Plan
Page 4
1.2
Although the initial Durham Mobility Study process included all the right
elements, only limited municipal contact has occurred, during its four year
duration.
Regional Council initiated the Durham Mobility Study in September 1999 to review
and update transportation policies, programs and infrastructure plans for the
Region. The Study was to provide input to the Regional Official Plan Review and
the Region's Development Charge By-law Study. The Study was also designed to
meet requirements of the Environmental Assessment Act to establish a basis for
more detailed assessments of individual transportation projects in the future.
A Steering Committee of Regional Councillors and Commissioners directed the
study. A community advisory committee and a project management team
provided advice, along with an interagency team (including local municipal staff)
and an interdepartmental team of regional staff. Totten Sims Hubicki (TSH)
Associates provided consulting assistance.
The draft Durham Transportation Master Plan (TMP) was released for public and
agency consultation in September 2001.
In November 2001, Pickering City Council considered the draft TMP and:
. requested that the TMP not be forwarded to Regional Council until the Region
consulted and collaborated with the City on an approach to transportation
matters for the East Duffins Area, Seaton and the Federal lands;
. requested release of the four remaining working papers and the Environmental
Assessment Summary Report, dialogue with City staff about outstanding
matters and release of a revised draft TMP for further consultation; and,
. endorsed the 15 major and the other minor concerns with the draft TMP that
were set out in Report PO 40-01.
The major concerns set out in the City's Report PD 40-01 were:
. that road corridors, expansions, improvements, highway interchanges and
bridges to serve the East Duffins Area, Seaton lands and the Federal lands
were not correctly detailed;
. as a result of the incorrect road network, inadequate capital budget and
development charge funding along with insufficient justification under the
environmental assessment process would occur; and,
. as a further result, individual road projects may be delayed, and growth in
central Pickering could be severely impeded.
Although a meeting of Regional and City staff in November 2002 produced a
better understanding about the concerns, the meeting did not resolve the
concerns.
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Report PD 40-03
Date: November 25, 2003
15
Subject: Durham Region Recommended Transportation Master Plan
Page 5
On October 8, 2003, the Regional Joint Committee of Planning and Works
considered Regional Report 2003-J-26, which recommended approval of the
Transportation Master Plan: Recommended Plan - October 2003.
The TMP established road improvement projects and transit usage targets to be
achieved by the year 2021. Many recommendations extend beyond a 2031 time
frame for implementation. Some of the key parts of the TMP are the:
. ultimate freeway and arterial road network;
. transit priority network;
. recommended regional road expansion program for 2004 to 2021;
. regional road rehabilitation, reconstruction and replacement program for
2004 to 2008; and,
. recommended regional road intersection and corridor improvement program
2004 to 2021 .
Joint Report 2003-J-26 also recommended that:
. the TMP be implemented through the budget process and annual Roads
Servicing and Financing Study;
. a Regional Official Plan amendment be initiated to incorporate relevant
portions of the Transportation Master Plan into the Regional Official Plan;
. the Works and Planning Departments proceed with the public involvement
recommendations;
. a notice of completion of the environmental assessment be issued; and,
. copies of the final Transportation Master Plan be distributed to local
municipalities and other stakeholders.
Among other matters, Report 2003-J-26 included an overview of the Durham
Mobility Study process, a summary of the key elements of the recommended
TMP, a summary of the comments submitted on the draft TMP, and a summary
of the changes to the draft TMP introduced by the recommended TMP. Attached
to Report 2003-J-26 was:
. a summary of the 64 recommended actions for the TMP; and,
. a table providing responses to the detailed comments submitted by the
City of Pickering and the other stakeholders.
Attachment #3 to Report PO 40-03 provides the Summary from the
recommended TMP, including the 64 recommended actions. Copies of the full
joint Regional Planning and Works Report 2003-J-26 and the Durham
Transportation Master Plan: Recommended Plan - October 2003 can be viewed
at the Planning & Development Department.
At its meeting on October 8, 2003, the Regional Joint Planning and Works
Committee received Report 2003-J-26 and requested area municipalities and
other interested parties to provide comments by December 10, 2003, so that
Regional Council could deal with the Transportation Master Plan on
December 17, 2003.
16
Report PD 40-03
Date: November 25, 2003
Subject: Durham Region Recommended Transportation Master Plan
Page 6
2.0
Staff Comments
2.1
The Recommended Durham Transportation Master Plan is commendable in
many respects.
The Recommended Transportation Master Plan is commendable because it:
. fills many data and information gaps contained in the 2001 draft
Transportation Master Plan;
. responds to most area municipal comments and those of other stakeholders;
. updates the information and analysis to reflect some recent initiatives and
changes; and,
. provides, generally, a commendable analysis and set of recommendations,
which intelligently addresses many broad based transportation policy
challenges for the Region and sets out a comprehensive program to provide
a good transportation network for most parts of the Region by 2021.
It also provides new detailed data and analysis on a large number of individual
infrastructure and proposed transportation elements.
2.2
Although limited time was provided to analyze the TMP, City staff is
satisfied that the Recommended TMP can be supported if:
(a) the recommended changes are made to include two additional roads
to the Region's construction and funding program (as detailed in
sections 2.2.1 and 2.2.2 of this Report); and,
(b) a further clarification is made to the text of the TMP confirming flexibility
on specific project timing.
Regional and City staff have met and agreed to a number of clarifications.
Regional staff will be detailing these changes in an Addendum Report for
Committee of the Whole.
An important change agreed to is the addition to the text to the TMP recognizing
that a major official plan amendment could trigger a change to the TMP (rather
than requiring updates of the TMP to be linked to the Region's five year official
plan review cycle). Staff also obtained a significant clarification that changes to
road designations shown in the TMP can be revisited in response to area
municipal comments. Changes may occur when the official plan amendment is
first initiated, or during the processing of the amendments.
A further clarification is required however. A number of projects are assigned to
a specific timeframe. For example, Finch Avenue improvements are anticipated
to be undertaken during the period between 2008 and 2012. The accompanying
text to the TMP must explicitly enable re-evaluation of individual transportation
projects and anticipated timing set out in the TMP Appendices, as circumstances
warrant, while maintaining the intent of the TMP as a strategic planning
document.
Report PD 40-03
Date: November 25, 2003
17
Subject: Durham Region Recommended Transportation Master Plan
Page 7
2.2.1 The Transportation Master Plan fails to include two necessary roads in central
Pickerinq (the Seaton lands) as Reqional roads pro~
Two key components of the TMP are Figure 13.2 - Freeway and Arterial Road
Network and Figure 16 - Proposed Regional Road Expansion Projects
(2004-2021). Figure 13.2 shows the ultimate network of roads to be designated
in the Regional Official Plan to be achieved by 2031 or later. Figure 16, however,
sets out the road segments that Durham Region is committed to finance and
construct by the year 2021 through development charges or capital funding.
Two road segments necessary to provide for north-south movement in Pickering,
which are shown on Figure 13.2 as parts of the ultimate road network, are not
indicated for Regional construction and funding on Figure 16. These are the
future north-south roads between Taunton Road and Highway 7, west of
Brock Road. To ensure that continuous road access can be made available to
the central parts of the Seaton area and to serve anticipated employment
development along Highway 407, it is necessary that these roads be included as
Regional projects for the 2004 - 2021 time period.
These roads should be identified on Figure 16 - Proposed Regional Road
Expansion Projects at this time, and appropriate funding identified by the Region.
Related text and appendix amendments should also be made to the document.
In the absence of such a commitment, the roads will be dependant on the timing
of the development industry, may be discontinuous for many years, and may
prejudice the location of the Highway 407 interchanges if there are no connecting
arterial roads. Overall, the absence of these roads as a Regional initiative would
seriously impede the economic development in this area.
2.2.2 The proposed separate Whites Road crossinq of West Duffins Creek should be
re-examined.
The TMP proposes an easterly realignment and new crossing of West Duffins
Creek for Whites Road, at a significant cost ($30 million). Considering the
anticipated environmental impact of an additional creek crossing, and the high
cost, consultants working for the City on the Growth Management Study have
identified a preferred alignment for Whites Road that uses an expansion to the
capacity of the current Taunton Road bridge. Staff also prefers this alignment,
over the one identified in the TMP.
Staff further recognizes that through the detailed environmental assessment
process, alternatives for crossing West Duffins Creek will be examined.
Although neither the Region nor the City's consultants have completed a detailed
review, staff recommends that an alternate alignment for the extension of
Whites Road over West Duffins Creek be shown on Figure 16. It is anticipated
that the alternate alignment may reduce costs and lessen environmental impact,
while ensuring a connection ultimately between Highway 401 and Highway 407.
18
Report PO 40-03
Date: November 25, 2003
Subject: Durham Region Recommended Transportation Master Plan
Page 8
It is therefore recommended that the Region revise Figure 16 of the TMP to
widen Whites Road in its current alignment south of Taunton Road, and increase
the volume capacity of the existing bridge crossing of West Duffins Creek.
2.2.3 Other clarifications are required to the FiQures in the Plan affectinQ the Brock Road
by-pass of Brouqham, the Westney Road by-pass of Greenwood, an east-west
arterial throuQh Duffin HeiQhts, and correct identification of the current urban area
boundary.
A number of technical changes are also required to Figures 13.2 and 16. Firstly,
Figure 16 should be amended to reflect a more easterly realignment of the
Brock Road by-pass of Brougham in order to be consistent with the alignment
identified in the draft Environmental Assessment. Secondly, Figure 16 should
also be amended to reflect a more easterly realignment of the Westney Road
by-pass of Greenwood to be consistent with the Pickering Official Plan.
Thirdly, Figure 13.2 should be amended to show a more northerly alignment of
the east-west Type C arterial crossing Brock Road with the Duffin Heights
Neighbourhood, to be consistent with refinements in the recently approved
Revision 1 to Modification 1 to the Pickering Official Plan. Fourthly, the shading
used to identify the urban area on Figure 13.2 should coincide with the
St. Lawrence & Hudson rail line west of Whites Road, as shown on Figure 16,
and designated in the Durham Regional Official Plan.
2.3
The Region accepted some of Pickering Council's requests for changes to
the designation of specific road segments and did not accept some others,
notably Dixie Road.
The Region did not accept Pickering Council's request that Dixie Road between
Kingston Road and Seaton be designated a Type C arterial and is proposing to
maintain it as a Type B arterial, to be re-evaluated once development plans for
Seaton are decided. In the meeting held between Regional and City staff, City
staff reiterated that the recommendations in the TMP are contrary to City Council's
resolution. As a minimum, City staff recommended the designation of Dixie Road
remain deferred when the Region's related official plan amendment is
processed. Further, staff will continue to monitor and report to Council on this
issue in light of the Growth Management Study.
Although the City has not received the technical data requested regarding the
designation of Fairport Road, the Region wants to maintain Fairport Road as a
Type C arterial road, to accommodate increasing traffic volumes. Staff concur
with the Region's argument that the Type C arterial designation is appropriate.
Ie r
Ii)
Report PD 40-03
Date: November 25, 2003
Subject: Durham Region Recommended Transportation Master Plan
Page 9
19
The Region agreed to Pickering's wishes to retain the extension of
Clements Road from Church Street to Westney Road (across Duffins Creek) as
a future connection, pending completion of an Environmental Assessment. Ajax
requested it be deleted due to possible environmental impacts.
The Region agreed to Pickering's request to maintain the Notion Road overpass
over Highway 401 as a future road designation in the Regional Official Plan
although its construction is not warranted until after 2021.
The Region agreed with Pickering Council that the by-pass of Highway 7 around
Brougham may no longer be needed due to the construction of Highway 407.
The Region agreed with Pickering to redesignate the portion of Finch Avenue
west of Altona Road and Townline Road from Arterial Type B to Type C roads.
Attachments:
1.
Figure 16 - Proposed Regional Road Expansion Projects (2004 - 2021) from
Durham Transportation Master Plan: Recommended Plan - October 2003.
Figure 13.2 - Freeway And Arterial Road Network from Durham Transportation
Master Plan: Recommended Plan - October 2003.
Executive Summary and Implementation Actions of the Durham Transportation
Master Plan: Recommended Plan - October 2003.
2.
3.
20
Report PD 40-03
Date: November 25, 2003
Subject: Durham Region Recommended Transportation Master Plan
Page 10
Prepared By:
~1Þ~.if-
teve Gaunt, MCIP, RPP
Planner"
Everett Bu ma
Director, Operations & Emergency SeNices
~~
Catherine Rose
Manager, Policy
SG:ld
Attachments
Copy: Chief Administrative Officer
Division Head, Corporate Projects & Policy
Recommended for the consideration of
Pickering City C ncil
/
,
...,
ATTACHMENT' ....:J TO
REPORT II PO ijð ,- 0 3
21
DURHAM TRANSPORTATION MASTER PLAN
EXECUTIVE SUMMARY
Introduction
The Regional Municipality of Durham is one of Canada's fastest growing communities. With the Region
poised for continued growth, the safe, efficient and reliable movement of people and goods will become
increasingly more important and challenging.
The Transportation Master Plan (TMP) is a strategic planning document designed to identify the policies,
programs and infrastructure improvements required to address Durham's transportation needs for the next
20 years and beyond. Developed through the Durham Mobility Study, the TMP reflects the growth and
development policies outlined in the Regional Official Plan and will be an important foundation document for
the review of the Official Plan now underway. The TMP has regard for the directions of the Region's
Community Strategic Plan. The recommended infrastructure plans are consistent with and support the long-
range capital plans contained in the 2003 Development Charge Background Study.
Preparation of the TMP followed the master planning process defined in the Municipal Class Environmental
Assessment (EA). The work completed in preparing the TMP satisfies the first two phases of the Class EA
planning and design process for Durham's anticipated transportation projects. Project specific investigations
are required to satisfy the final phases of the EA process. A framework approach for completing these
phases is provided as part of the TMP.
In keeping with the principles of environmental assessment, the Durham Mobility Study featured a high
degree of public involvement. Public open houses, an opinion survey, website, newsletters and a
Community Advisory Committee were all utilized to obtain citizen and business input on transportation
priorities and tradeoffs.
Current and Future Conditions
The Region's existing transportation system consists of an integrated network of roads, railways, public
transit routes, airports, marine facilities, and trails which collectively facilitate the movement of people and
goods. Several levels of government, as well as private companies, are responsible for the development,
operation, and maintenance of the system.
Future demand on the transportation system is expected to increase as the Region grows. Recent forecasts
indicate that the Region's population and employment are expected to increase by 55% (from about 550,000
to 850,000 persons) and 83% (from 170,000 to 311,000 jobs) respectively, by 2021. The impact of these
increases was assessed using a computer-based model that predicted how future travel demand could
change as a result of this anticipated growth. The results of this analysis indicate that the Region will face
several challenges in achieving an efficient, safe and reliable transportation system without changes in travel
behaviour and new services and facilities.
~ Transportation Master Plan
;;,s;; Regional Municipality of Durham
Executive Summary - Page S-l
Recommended Plan - October 2003
22
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ATTACHMENT # ~ :3 TO
REFORT # PO ..ý" 0 .~ () 3
During the afternoon peak period in 2001, about 87% of Durham residents travelled by automobile (either as
a driver or passenger), compared to 6% by transit and 7% by other modes. If this trend continues, the
number of person trips made by residents travelling in automobiles will increase by 230,000 trips during the
peak period of an average day in 2021. This forecasted amount of growth in automobile travel is almost
double 2001 volumes - a trend that is clearly unsustainable.
Vision, Goals and Principles
In consultation with the public, it was determined that a continuation of the current trend of an auto-
dominated transportation system was not desirable. Citizens felt that the Region should concentrate on a
balanced transportation strategy that focussed on investing in both road infrastructure and measures aimed
at reducing single occupant vehicle travel (i.e. transit and transportation demand management). A
committed effort to reduce automobile use will be required to achieve this goal.
With this in mind, a Transportation Vision or "desired end state" for Durham Region is proposed for the year
2021, as follows:
The transportation system for the Region of Durham is integrated and balanced, using a range of
transportation strategies to address the mobility and goods movement requirements of the entire
community, to sustain investment in industry, agriculture and tourism, to maintain community
"wellness ", and to integrate with the environment.
The auto continues to be the dominant mode of transportation; however, the community has
realized a shift towards greater use of trans it, pedestrian and cyclingfacilities.
The changes in modal usage have been accomplished by increased urban densities, mixed use
development, policies that encourage reduced auto use, higher order transit facilities linking
centres within Durham and other urbanized areas in the GTA and improved integration of the
various modes of transportation.
The necessary funding available from all levels of government has been put in place and all
possible opportunities for private sector funding to achieve the improvements necessary to ensure
a liveable community have been investigated.
The Transportation Vision is supported by goals and principles, which promote: facilitating sustainable
economic growth; effective use of the system; safe, reliable and efficient movement of people and goods;
choices in services; and responsible development and environmental integrity.
The Plan
To achieve the desired transportation vision for the Region, the TMP details three co-ordinated and
comprehensive strategies:
. Providing More Travel Choices
. Improving the Road System
. Mitigating Environmental and Community Effects
~ Transportation Master Plan
;;¡:; Regional Municipality of Durham
Executive Summary - Page S-2
Recommended Plan - October 2003
ATTACHMENT # _.8 TO
REh./Rl # PO ¥ ð' cJ 3
23
These strategies provide a framework for establishing a more sustainable transportation system in keeping
with the directions of the Community Strategic Plan and Regional Official Plan. Each strategy is
supplemented by a series of recommended actions intended to define specific implementation activities
towards implementing the strategy. A summary of the recommendations is attached.
Providing More Travel Choices
Offering a greater variety of choices is a fundamental goal of the TMP. Actions to increase travel choices
focus on:
Transportation Demand Manaqement (TDM)
Transportation Demand Management (TDM) is a co-ordinated series of actions aimed at maximizing the
people moving capability of the transportation system. Intended to reduce single-occupant auto use,
potential TDM measures include: TDM supportive land use, bicycle and pedestrian programs and facilities,
public transit improvements, preferential treatments for buses and high occupancy vehicles, ridesharing and
employee incentives. The TMP recommends that the Region take an active role in implementing a TDM
program to reduce forecast 2021 peak period automobile driver trips to 15% below projections based on
current mode choice trends. This will be achieved by engaging a TDM Co-ordinator to develop and deliver
the program. Education and marketing will be key components.
land Use Management
The form development takes and its location directly affect the amount of travel, the length of trips, and the
choice of travel mode. The TMP recommends implementing land use plans and encouraging development
forms that help make alternatives to the automobile, especially transit, more attractive and viable. In
addition, the TMP recommends: supportive land use designations; and the preparation of complimentary
implementation guidelines and checklists. These actions will help to detail and promote conformity with the
Regional Official Plan, which already establishes a sound framework for land use management.
Walkinq and Cvclinq
Walking and cycling alternatives should be promoted by supportive urban and road design, provision of
appropriate facilities, such as dedicated paths and paved road shoulders, and through education about
routes and the benefits of active living. The TMP recommends: the development of a Regional Bicycle Plan;
and consideration of the needs of cyclists and pedestrians in the planning, design, construction, maintenance
and operation of the Regional Road network.
Transit and Other Public Transportation Services
Public transportation (i.e. specialized and conventional transit services, paratransit, taxis, and intercity public
transportation) is an integral and important element of the Region's transportation system. The recently
approved Regional Transit Improvement Plan (TIP) outlines short and long-term actions to integrate and
improve inter-municipal transit service within Durham.
\::b. Transportation Master Plan
~ Regional Municipality of Durham
Executive Summary - Page S-3
Recommended Plan - October 2003
24
ATTACHMENT # S TO
RUJRl # PO -¥'t.? - 0 .3
In support of the TIP, the TMP identifies a Transit Priority Network that will provide the foundation, ultimately
for a Bus Rapid Transit (BRT) system. BRT service is anticipated to evolve in the corridors that comprise the
network, from buses in mixed traffic to vehicles operating in dedicated lanes. The TMP also recommends
actions to support the Transit Priority Network, including: identifying right-of-way requirements; developing a
phased service strategy for BRT; considering transit priority measures; working with GO Transit to expand
commuter rail and bus services; and conducting feasibility studies to identify future routes.
Other public transportation recommendations include: considering a Community Transportation Program;
and investigating demand responsive services.
Improving the Road System
The TMP places a strong emphasis on actions aimed at protecting, improving and making the best use of the
Region's investment in the road system. However, the TMP recognizes that selective road expansion is
needed to support growth. Actions to improve the road system focus on:
Road System Hierarchy and Desion
The major road system designated in the Regional Official Plan is composed of a functional hierarchy of
arterial roads and freeways. The TMP recommends that this hierarchical approach be maintained, and
design characteristics be detailed through the development of Arterial Road Corridor Design Guidelines. The
TMP also recommends an updated Freeway and Arterial Road network for the Regional Official Plan that
reflects changes to designations identified through the development of the TMP.
Provincial Hiohways and Other Road Connections
The Provincial Highway network forms the backbone of the transportation system in Durham. The TMP
recommends that the Region petition the Provincial Government to: continue to improve the freeway system
in Durham; and invest in trade corridors connecting the Region to markets in other parts of Canada and the
United States.
Reoional Roads
The Region is responsible for an extensive network of arterial roads and structures (bridges and culverts).
The TMP recommends a series of actions aimed at ensuring timely maintenance, safe and efficient
operation, and selective expansion of the Regional Road network.
Road Safety
Motor vehicle collisions represent a significant safety concern. They result in economic loss, personal pain
and suffering, and occasionally the loss of life. To lessen the severity or eliminate certain crashes altogether,
the TMP recommends addressing road safety in a proactive manner through the development and
implementation of a Safety Management Strategy. The TMP also recommends: working with the Durham
Regional Police and others to encourage more responsible driving habits; allowing electronic enforcement
~ Transportation Master Plan
;;¡:; Regional Municipality of Durham
Executive Summary - Page S-4
Recommended Plan - October 2003
ATTACHMENT #:3 TO
An vAl # PO ~ 0 ' c) 3
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methods, where suitable; establishing appropriate policies and warrants for various traffic control measures;
and using road safety audits in planning and designing future roads.
Transportation System Manaqement
Transportation System Management (TSM) solutions can offer substantial, low-cost gains in operational
efficiency. The Region will continue to apply a variety of TSM measures, including traffic control devices,
computerized traffic signal co-ordination and localized roadway modifications. A wide range of emerging
technologies, referred to as Intelligent Transportation Systems (ITS), will also be considered. These
solutions can make the transportation system safer and more efficient, reliable and environmentally friendly,
without the need for costly and intrusive road improvements. Examples of ITS measures include traffic
surveillance and emergency vehicle signal pre-emption. The TMP recommends the development of an ITS
Strategy, Incident Management Plans, and the continued upgrade and modernization of the Region's traffic
control systems to maximize safe and efficient operation for a variety of modes.
Goods Movement and Access to Ports and Harbours
The TMP proposes a Strategic Goods Movement Network to ensure reliable and efficient goods movement
within Durham Region and to the entire Greater Toronto Area (GTA). Implementation of this network will
focus on actions to ensure routes are continuous, capable of accommodating heavy vehicles and connected
to key destinations and intermodal facilities. Opportunities to use other modes, such as rail, will also be
promoted. To gain a better understanding of the challenges faced by industry, a Goods Movement
Roundtable will be established to provide an ongoing forum for industry and other stakeholders.
Mitigating Environmental and Community Effects
Expansion and increased use of the transportation system can contribute to unintended environmental
consequences. These effects need to be considered and mitigated in the development and operation of
transportation facilities. Actions to mitigate environmental and community effects focus on:
Air Quality and Emissions
Transportation is one of the largest sources of air pollution in Canada. By managing congestion and offering
a choice of travel options, the adverse effects of transportation on air quality will be lessened. Technological
advances to reduce energy consumption, improve engine and vehicle performance, and enhance fuels will
also help. The TMP recommends that the Region: continue to participate in initiatives such as the Smog
Summit and GTA Clean Air Council; and develop an education and marketing program to inform people of
the impact of transportation related air pollution and travel choice decisions.
Road Drainaqe
There is growing concern over environmental issues related to stormwater drainage and its effects on
receiving bodies of water and affected vegetation, soils and wildlife. The TMP recommends the
implementation of a Road Drainage Policy to address this concern.
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~ Regional Municipality of Durham
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26
ATTACHMENT# 3 TO
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Traffic in Residential Areas
Speed and volume of traffic travelling through neighbourhoods is a growing concern for many residents. In
addition, the public is becoming increasingly concerned about traffic noise, particularly from major streets.
To address these concerns, the TMP recommends the development of a Regional Road Traffic Management
Policy, Hamlet By-pass Policy and Regional Road Noise Abatement Policy.
Implementation
The process for implementing the TMP and its recommended actions is cyclical and involves considerable
public consultation. The process begins with the development of the TMP and the establishment of a policy
direction. Through various annual programming exercises (e.g. Servicing and Financing Studies, the annual
current and capital budgets and longer term financial forecasts), investment priorities and timings are
established. The planning and design phase for future infrastructure begins once priorities are set, and
follows the Municipal Class Environmental Assessment process. Physical implementation occurs with
construction, and continues into the operation and maintenance of the facilities. Monitoring is undertaken to
gauge the effectiveness of the policies in achieving the TMP goals and objectives. Shifts in underlying
assumptions or achievement of objectives signal the need for a review of the basic policy direction, and the
process starts again.
A regular review of the TMP is proposed every five years, ideally at the same time the Region carries out the
statutory assessment of the need for an update to its Official Plan. In the intervening period, the Region
does not intend to update the TMP. For this reason, individuals must consider this plan in conjunction with
the record of subsequent Regional Council decisions to obtain a complete understanding of current policy
and plans.
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Recommended Plan - October 2003
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SUMMARY OF RECOMMENDED ACTIONS
FOR THE TRANSPORTATION MASTER PLAN
1.
Develop a Transportation Demand Management (TOM) Program to reduce projected year 2021
peak period automobile driver trips by 15% below forecasts based on current trends, focussing first
on actions to promote:
. Transit, pedestrian and cycling-oriented development through land use management;
. Walking, cycling and ridesharing; and
. Use of transit and other public transportation services.
Subject to budget approval, engage the services of a TOM Co-ordinator to:
. Plan and design a TOM Program;
. Develop and conduct marketing and education initiatives related to TOM;
. Approach potential businesses to participate in the TOM Program;
. Assess the potential market for ridesharing and, if promising introduce a ridematching
service with the assistance of other groups and agencies; and
. Monitor and report on the effectiveness of the TOM Program.
Pursue funding opportunities with the Provincial and Federal Governments and the private sector for
the TOM Program.
Conduct a Commuter Parking Lot Feasibility Study to determine:
. The potential location and demand for commuter parking lots;
. How to integrate the lots into the overall TOM program and to co-ordinate with other
Regional and GTA initiatives; and
. Partnership opportunities.
Petition the Federal Government to amend taxation laws to enable employers to provide income tax-
exempt transit passes to employees.
Investigate opportunities and, where feasible and subject to budget approval, lead initiatives to
encourage intensification and more mixed-use development, and to create incentives for
redevelopment and infilling adjacent to transit priority facilities, especially in the Highway 2 corridor.
Prepare TOM-Supportive Land use Guidelines in consultation with the Local Municipalities that:
. Define the concept and elements of TOM-supportive land use patterns;
. Plan for transit services and TOM-supportive facilities in the formative stage of plan
development;
. Determine applicable locations for TOM-supportive development, which will typically be
adjacent to Transit Corridors and Transportation Centres;
. Identify complementary policies and initiatives; and
. Define implementation and performance measures.
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8.
Develop a Development Application Checklist in consultation with the Local Municipalities that
requires:
. Consistency with the approved TDM-Supportive Land Use Guidelines;
. :::í ;couragement and support for the safe and convenient use of transportation modes other
than the automobile;
. The early input of transit agencies in the review of development applications;
. The presence of a grid system of arterial, and collector roads where necessary; and
. A plan for implementing transit service and TDM-supportive facilities early in developing
areas.
Examine the concept of Activity Centres and Transit Corridor Districts through the Regional Official
Plan review as an approach to promoting transit-supportive development in desired locations.
Develop a Regional Bicycle Plan in consultation with the Local Municipalities, the Ministry of
Transportation and other stakeholders, which:
. Focuses activity on the Local Municipal road and path systems;
. Connects the Local Municipal bicycle systems together;
. Integrates with other modes of transportation;
. Considers the need for bicycle facilities within Regional Road corridors;
. Identifies facilities that may be required on the Provincial Highway network to achieve
network continuity, which may be subject to municipal funding; and
. Defines an implementation strategy, identifying public education and marketing initiatives,
costs, financing sources, and responsibilities.
Develop guidelines for ensuring the needs of pedestrians and cyclists are considered in the
planning, design, construction, operation and maintenance of the Regional Road network.
Designate the Transit Priority Network depicted in Figure 11 as part of the Regional Official Plan
and, subject to budget approval, implement this network by:
. Identifying right-of-way requirements within each transit corridor to permit service
evolution, including needs for stations, and incorporating such provisions into the Regional
Official Plan;
. Developing a phased service strategy for evolving towards a Bus Rapid Transit (BRT)
system;
. Considering transit priority measures, such as reserved lanes, queue jump lanes and
transit-activated signals, where feasible and warranted;
. Incorporating policies and designations into the Regional and Local Official Plans to
promote transit-supportive land uses abutting corridors and other supportive measures;
and
. Incorporating transit corridor design parameters into the Arterial Road Corridor Design
Guidelines and TDM-Supportive Land Use Guidelines.
9.
10.
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Recommended Plan - October 2003
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13.
Recognize Highway 2 as Durham's most significant transit corridor, and, subject to budget approval,
develop the corridor to its fullest potential by:
. Continuing to prepare corridor studies to outline the actions necessary to transform the
existing road into a "mainstreet";
. Requiring transit-supportive land uses as development and redevelopment occurs;
. Enhancing streetscape and urban design;
. Balancing the need to preserve mobility with the desire to create a more pedestrian-
oriented environment in the review of operating conditions and development applications;
and
. Incorporating appropriate supporting policies and designations into the Regional and Local
Official Plans.
Request GO Transit to:
. Expand commuter rail service through the City of Oshawa, to the proposed station in the
vicinity of Harmony Road and Bloor Street, along the CPR Belleville subdivision; and
. Expand bus services along Highways 401 and 407, and to northern urban areas in
Durham Region, and begin by providing more service on existing routes.
Subject to budget approval (if necessary), support the protection of corridors for future:
. Transit service to the future Seaton community in the City of Pickering, in the vicinity of
Brock Road and Taunton Road, along the CPR Belleville subdivision;
. Transit service to the Municipality of Clarington along the CPR Belleville subdivision, with
stations in Courtice at Courtice Road and in Bowmanville at Green Road; and
. Transportation opportunities in the CPR Havelock and former CNR Uxbridge corridors.
Explore the interest in establishing a Community Transportation Program with potential stakeholders.
Co-operate in the promotion of a GTA-wide inter-regional transit plan, after considering the financial
and service implications for Durham.
Request GO Transit, the Toronto Transit Commission and York Region Transit to introduce
measures that make public transportation more attractive to longer-distance commuters.
Encourage potential public and private sector service providers to participate more in the delivery of
public transportation services in the Region, with a focus on:
. Working with taxis and other commercial carriers to provide off-peak, low volume and non-
traditional services, and to improve their connectivity with other public transportation
services; and
. Providing better service to the rural area and passengers with special needs.
Conduct feasibility studies to examine the use of following corridors for passenger transportation
uses:
14.
15.
16.
17.
18.
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. The CPR Belleville subdivision between the City of Toronto and the Municipality of
Clarington (Bowmanville);
. Regional Highway 47 between Township of Uxbridge and York Region; and
. Hydro corridors within Durham Region.
Designate the hierarchical road system comprising Type A, Band C arterial roads and the freeway
system shown in Figure 13 as part of the Regional Official Plan.
Prepare Arterial Road Corridor Design Guidelines in consultation with the Local Municipalities and
other stakeholders that:
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Recommended Plan - October 2003
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23.
. Define the role of the arterial road system and public space principles;
. Determine an appropriate approach for balancing mobility objectives for vehicular
movement and property access with liveability objectives for community design, landscape
character, and non-auto modes;
. Define roadway access management criteria;
. Provide design criteria for the roadway, boulevard and adjacent lands, such as road
allowance widths, cross-section, location of utilities and connections, in advance of
development, where possible;
. Consider the most appropriate placement for pedestrian, cycling and transit facilities within
the road allowance, subject to financial considerations;
. Define implementation measures.
Advise the Local Municipalities of the actions in Attachment 1 to the Transportation Master Plan
regarding the designation and jurisdiction of specific arterial roads.
Petition the Provincial Government to improve the Provincial Highway network in Durham Region
through:
. The extension of Highway 407 to Highway 35/115, including two high-speed freeway
connections to Highway 401 ;
. The expansion of Highway 401, including the construction of new or improved
interchanges;
. The extension of Highway 404 and the related widening of Highways 48 and 12/48; and
. The improvement of Highways 7, 7A and 7/12.
Request the Ministry of Transportation to review the location and configuration of future Highway 401
interchanges and grade separations in Durham Region, especially near Liverpool Road (City of
Pickering), in the vicinity of Harmony Road (City of Oshawa) and east of Courtice Road (Municipality
of Clarington).
Petition the Provincial and Federal Governments to invest in the expansion and on-going
improvement of Canada/U.S. trade corridors, especially as it relates to the freeway system.
Request the Ministry of Transportation to investigate strategies, such as dedicated facilities, to
improve the flow of truck traffic and the movement of goods.
Request the City of Toronto and/or York Region to proceed with:
. The continued widening of Steeles Avenue;
. The improvement of 14th Avenue; and
. The implementation of the Markham-Scarborough link.
24.
25.
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Recommended Plan - October 2003
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29.
Subject to review and approval through the Roads Servicing and Financing Study and appropriate
budgets, develop and maintain the Regional Road network in a manner that promotes:
. Safe and efficient operation for all road users;
. Sufficient capacity to accommodate travel demands;
. Cost-effective service delivery;
. Asset management strategies for timely preventative maintenance and rehabilitation;
. Investment decisions based on life-cycle cost consideration; and
. The application of appropriate technologies.
Require that utility cuts and other actions that detrimentally impact the life of a pavement or structure
be minimized and restored to a reasonable state.
Benchmark and monitor the effectiveness of infrastructure management programs.
Engage the railway companies proactively to gain their support, including financial, for grade
separating railway crossings of Regional Roads where conflict warrants have been established,
beginning with:
. Brock Road at the CPR Belleville (City of Pickering);
. Bloor Street at the CPR Belleville (City of Oshawa); and
. Hopkins Street at the CPR Belleville (Town of Whitby).
Determine if there are locations on the Regional Road network where at-grade intersections should
be grade-separated to alleviate traffic safety or operational concerns.
Develop a Safety Management Strategy and establish targets to measure its success, which may
include:
. Striving for fewer fatalities and personal injury collisions;
. Promoting safer walking and bicycling; and
. Reducing the number of intersection-related collisions.
Work with the Durham Regional Police Service and other stakeholders to reinforce the benefits of
safe driving and to encourage more responsible driver behaviour through actions such as:
. Conducting regular educational and promotional programs;
. Promoting and initiating new programs like Road Watch, Save A Life and RIDE; and
. Carrying out targeted enforcement initiatives.
Establish and observe appropriate policies and warrants for the implementation of traffic control
measures, including traffic signals, speed zones, and turn restrictions.
Petition the Provincial Government to allow electronic enforcement methods, such as photo radar,
where their introduction is feasible, cost-effective and likely to effect the desired change in driver
behaviour.
Examine safety explicitly in the planning and design process for future road projects through
initiatives such as Road Safety Audits.
Develop an Intelligent Transportation Systems Strategy to enhance the efficiency and reliability of
the regional transportation system.
Develop Incident Management Plans to outline traffic diversion strategies for unforeseen events.
Designate a Strategic Goods Movement Network as part of the Regional Official Plan after
consulting with the Local Municipalities and key stakeholders on the plan shown in Figure 17.
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42.
Confirm the Strategic Goods Movement Network by:
. Signing preferred truck routes;
. Identifying and promoting potential locations for intermodal transfer facilities to enable
more use of rail and other modes;
. Disseminating information on the network widely;
. Considering roadway geometric standards that better accommodate trucks in design; and
. Eliminating by-law restrictions to truck movement, where possible.
Establish a Chairman's Roundtable on Goods Movement to provide a forum for on-going dialogue
between industry, affected stakeholders, Local Municipalities, Senior Governments and the Region.
Conduct or participate in goods movement surveys and other data collection initiatives to improve
understanding of the structure and nature of freight activity.
Continue to participate in programs and organizations, like the Smog Summit and the Greater
Toronto Area Clean Air Council, aimed at reducing harmful emissions and improving air quality, and
carry through with commitments.
Conduct education and marketing as part of the recommended TOM Program to inform citizens
about the adverse impacts of transportation-related air pollution and on measures to reduce auto
travel.
Train employees to be more environmentally responsible when operating vehicles.
Develop a Regional Road Drainage Policy that balances environmental and development objectives
and identify state of the art and best management practices for the mitigation of stormwater run-off
from both public and private lands.
Develop a Regional Road Traffic Management Policy in consultation with the Local Municipalities,
the Durham Regional Police Service, and appropriate stakeholders to address concerns with traffic
on Regional Roads in residential areas.
Develop a Hamlet By-Pass Policy in consultation with the Local Municipalities that identifies criteria
(including financial) for establishing the need and justification of future arterial road realignments
around communities, and review the proposed by-pass locations designated in the Regional Official
Plan for conformance with the policy.
Consult with the aggregate industry and other stakeholders to establish preferred haul routes around
sensitive residential areas using the Strategic Goods Movement Network as a basis.
Develop a Regional Road Noise Abatement Policy in consultation with the Local Municipalities and
the development community to establish noise level thresholds and applicable mitigation measures.
Use the annual Servicing and Financing Studies and Operating and Capital Budget processes to
update costs, refine priorities, and present a comprehensive program and financial perspective.
Petition the Provincial and Federal Governments to provide municipalities with the tools to obtain
sustainable, dedicated funding sources for financing transportation infrastructure and services.
Subject to review and approval through the Roads Servicing and Financing Study and Roads Capital
Budget, proceed with Municipal Class Environmental Assessment studies for the projects identified
in Figure 16 in a timely manner.
Preserve and if necessary mitigate environmentally sensitive and significant natural areas through
planning, design, landscaping measures and best management practices when upgrading or
expanding transportation facilities.
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Recommended Plan - October 2003
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57.
58.
Inform and involve the public in the planning, design and construction of Regional Road
improvements to the greatest extent possible, in keeping with statutory obligations and project
constraints.
Plan infrastructure, including modifications, in a manner that recognizes implications for service level
standards, operating and maintenance practices and costs for service delivery.
Plan infrastructure to provide adequate snow storage space and adequate green space.
Introduce right-of-way enhancements, such as street furniture and planters, in a manner that
maintain safe traffic operations and preserves a clear, unencumbered right-of-way for maintenance
services, wherever possible.
Develop, and subject to budget approval, conduct a region-wide Transportation Monitoring Program,
and report progress to Regional Council on a regular basis.
Subject to budget approval, support new and on-going data collection initiatives critical to monitoring
transportation conditions and predicting future needs, including the:
. Census of Canada;
. Transportation Tomorrow Survey;
. Corridor Count Program; and
. Regional Geographical Information System.
Review the Transportation Master Plan every five years, ideally in conjunction with a review of the
Regional Official Plan.
Consider the policies and recommendations of the Transportation Master Plan in future reviews of
the Regional and Local Official Plans.
59.
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~ Regional Municipality of Durham
Executive Summary - Page S-13
Recommended Plan - October 2003