HomeMy WebLinkAboutDTS-06-070 - South Kitchener Transportation Corridor Study
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KITCHENER
Development &
Technical Services
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Report To:
Date of Meeting:
Submitted By:
Prepared By:
Ward Involved:
Date of Report:
Report No.:
Subject:
Chair Vrbanovic and Members of the Environmental
Committee
April 20, 2006
John McBride
Robert Shamess, Brandon Sloan, Barb Steiner, John McBride
Ward 2 - Chicopee - Grand River
Ward 3 - Fairview - Gateway
April 20, 2006
DTS 06-070
SOUTH KITCHENER TRANSPORTATION CORRIDOR
STUDY
RECOMMENDATIONS:
"That the Environment Committee support alignment Alternative 4C which provides for a
partial interchange of the River Road/Bleams Road extensions with Highway 8 as
outlined in the attached report, and further;
That the report to City Council on the South Kitchener Transportation Corridor Study
include the comments and recommendation from the Environmental Committee."
EXECUTIVE SUMMARY:
The Region of Waterloo is conducting an Environmental Assessment of the potential extension
of River Road from King Street west to Goodrich Drive along the north edge of Environmentally
Sensitive Policy Area (ESPA) #27, in the Hidden Valley area, and has asked for City of
Kitchener comments on the preferred alignment.
The Project Team, which is comprised of Regional staff and Councillors, City of Kitchener staff
and Councillors, Grand River Conservation Authority Staff, Ministry of Natural Resources staff
and Ministry of Transportation staff, has unanimously selected a preferred alternative and is
presenting it to the Regional Planning and Works Committee for information and Public Input.
The preferred Alternative is identified as 4C, shown in Figure 1.
· The Class Environmental Assessment for the South Kitchener Transportation Corridor is
nearing completion with unanimous Steering Committee selection of Alternative 4C as the
preferred alternative;
· Extensive Public Consultation has occurred over the course of the study involving local
residents, businesses, interested public, special interest groups, and review agencies.
Three Public Consultation Centres and a workshop were held where active public
participation was achieved;
· The public's view has been consistent on the point that there are transportation issues in
the area that need to be addressed. Many have also stressed the importance of
maintaining the natural area that exists today that includes ESPA 27 and two Provincially
Significant Wetlands(PSW);
· The Ministry of Natural Resources and the Grand River Conservation Authority are
supportive of Alternative 4C (strongly encourage a design speed of 70 km/hr). Both
agencies will continue to be part of the process in order to have input on mitigation
techniques for minimizing disruption to the natural environment;
· The Environmental committees of the Region of Waterloo and the City of Kitchener have
recommended that the boundaries of ESPA 27 be expanded and that no transportation
corridor be constructed in the area.
City of Kitchener input is being requested on the preferred alternative. This input, along with
that from other agencies, will be presented to the May 9, 2006 Public Meeting of the Region's
Planning and Works Committee and will be incorporated into a final staff report to the Planning
and Works Committee. After receiving final Regional Council approval of the preferred
alternative, Phase 3 of the Environmental Assessment process will commence and will include:
· Continue to examine detailed design concepts and mitigation techniques for natural area
impact and well head area mitigation;
· Continue to work with the Stonegate Drive residents to complete the detailed design of the
ramp connection with Stonegate Drive;
· Determine property requirements and initiate land purchase with owners;
· Determine final project costs;
· Complete the Environmental Study Report and report to Regional Council.
BACKGROUND:
The Region of Waterloo is conducting an Environmental Assessment on the potential extension
of River Road from King Street west to Goodrich Drive along the north edge of Environmentally
Sensitive Policy Area (ESPA) #27, in the Hidden Valley area, and has asked for City of
Kitchener comments on the preferred alignment.
The original alignment was adopted by the Region of Waterloo and City of Kitchener in 1981,
and again in 1994. The intent of the South Kitchener Transportation Corridor Study was to
update and complete Phase I and II of the study following the Provincial Class Environmental
Assessment process including;
· Problem Definition and Needs Assessment,
· Involvement of the public and review agencies in an on-going consultation effort,
· Conducting investigations for Social/Cultural and Heritage environment in the study area,
· Land Use and Economic considerations,
· Inventories of Natural/Cultural Environment in the Hidden Valley area, and
· Transportation and Environmental impacts of alternative network solutions.
The study also included a significant environmental data collection component. This data was
used to determine areas that qualify as ESPA under the Regional Official Plan and to define the
PSW boundaries.
The scope of the study included the establishment and protection of possible transportation
corridors to provide future east-west access through South Kitchener to meet the needs of
people and goods movement by trucks, motorists, public transit, cycling and walking. A
transportation link through the Hidden Valley area has been identified within the current versions
of the Regional and City of Kitchener Official Plans. The 1999 Regional Transportation Master
Plan also confirmed the need to create a new corridor with the study area along with a new
Highway 8 interchange between Fairway Road and the Grand River. The Central Transit
Corridor Feasibility Study identified a potential future stop at Fairview Mall in the study area;
therefore, transit efficiency to Fairview Mall will be important for the success of the future rapid
transit system. The Regional Cycling Master Plan (2004) also identifies the need for a cycling
facility in conjunction with planned roadway upgrades and transportation system expansion in
the study area. This study considered the established road corridor along with many other
alternatives.
It quickly became apparent to the Steering Committee that:
· The previously identified alignment should be replaced with a routing solution that is
sensitive to natural conditions and approved development opportunities within the study
area, while effectively addressing transportation needs;
· The new routing solution should maximize the use of existing roads within the Study Area,
taking into account roadway design standards;
· An interchange connection between a new River Road extension and Highway 8 is
preferred, but whether it is a full or partial interchange is dependent on public and
stakeholder input, agency responses, design considerations and cost. Also, consideration
should be given to the impacts of this interchange on Highway 8 and Fairway Road,
including Kitchener-Wilmot Hydro plans, and associated redevelopment projects on and in
the vicinity of Fairway Road.
REPORT:
The South Kitchener Transportation Corridor Study (Study Area - Appendix A) commenced in
2004 with a Project Team comprised of Regional staff and Councillors, City of Kitchener staff
and Councillors, Grand River Conservation Authority Staff, Ministry of Natural Resources staff
and Ministry of Transportation staff.
Three Public Consultation Centres and a Workshop were held during the study to obtain
opinions and preferences from the public on the problem/opportunity definition, potential
alternative planning solutions, evaluation criteria and their preferred alternative.
At the last Public Consultation Centre, five planning alternatives were presented to the public
along with a detailed assessment and comparison evaluation. The Steering Committee
identified two alternatives as being preferred (Appendix B);
· Alternative #4B with a new River Road extension from King Street to Manitou Drive
utilizing existing road allowances around as much of the Hidden Valley area north edge as
possible and extending west along Goodrich Drive to Manitou Drive, and with a partial
interchange on the east side of Highway 8 and a new southbound Highway ramp from
Fairway Road; and
· Alternative #SA with the same River Road extension alignment, but with a full interchange
at Highway 8.
The results of the evaluation are shown in Appendix C. Overall, the evaluation resulted in
Alternatives 4B and SA being preferred. At the last public meeting, 170 people attended to view
the preferred alternatives. The majority of people indicated that they preferred an alternative that
limited impact on the natural environment but provided improved highway access. There were a
few comments indicating that no road should be built and that the whole area should be
preserved.
Refinements to Alternatives SA and 4B
Subsequent to the last PIC, the MTO has confirmed that they would not accept Alternative SA
because of the use of a roundabout at the ramp terminal. This resulted in the further refinement
of alternatives that solved the transportation challenges in the study area while minimizing
environmental impact.
Alternatives SA and 4B were further refined and evaluated because of the MTO's inability to
support roundabouts at this time.
A new Alternative 4C (Figure 1) was developed with all the same principles as Alternative 4B,
except the East to South Ramp to the Highway was removed and there was southbound
Highway access provided directly from River Road. This alternative provided highway access in
all directions except the southbound exit from Highway 8 to River Road. Given the MTO
improvements at the Fairway interchange that are beginning construction now, this exiting
movement can be accommodated with consideration for a full-turn access at Wabanaki Drive
and Fairway Road.
Steerinc Committee Preferred Alternative
At the last Steering Committee meeting on March 22, 2006, the following statement was
developed and unanimously accepted by the whole committee.
"The recommended alternative for the South Kitchener Transportation Corridor Study is
Alternative 4C (Figure 1) with a design speed of 70 km/hr, if feasible and with mitigation and
treatment for any wetland and forest impacts." Full consideration should be given to alternative
design speeds, minimizing tree loss, narrower road widths, alternative methods for winter
maintenance (no road salt), and recovering and replanting of disturbed vegetation.
Figure 1 - Alternative 4C
Citv TransDortation Comments
From the City's perspective, there are two main transportation related issues. The first issue is
the maintenance of a secondary means of access to the existing residential development on
Hidden Valley Road. This is essential to facilitate emergency access as well as offer alternate
routing choices for the public. The Region and the Ministry of Transportation have both agreed
that an access road will be permitted from the River Road Extension just south of the Hwy 8
interchange. This connection will also provide access to lands yet to be developed and will help
to minimize the impact of this development on the existing residential community.
The second transportation related issue was raised at the last public meeting when several
residents of the Stonegate Drive area expressed concern with the connection of the ramps on
the east side of the highway to River Road opposite Stonegate Drive, as outlined in Figure 2.
Their concerns included potential cut through traffic in their neighbourhood and safety. It was
felt by some, that potential congestion at the King and River intersection may encourage
motorists to attempt to bypass this intersection by using Stonegate Drive to King Street. In this
neighbourhood, there must be two points of access for emergency vehicles so the full closer of
Stonegate Drive at River Road is not an option. The current access near River Road and King
Street must be closed because it is too close to the intersection. In addition, the original plan of
subdivision for this area clearly showed Stonegate Drive connecting with the River Road
extension, however at that time, the potential impacts of the ramps may not have been realized.
It is Staff's position that every effort must be made in the design of the ramps to minimize the
opportunity for through traffic on Stonegate Drive while still maintaining reasonable access for
the residents. Staff stated to these residents that there will be a separate meeting with
Stonegate Drive residents as part of the next phase of this project. At the last public meeting,
Regional and City of Kitchener staff made a commitment to explore solutions with the residents,
to minimize neighbourhood impacts of the connection related to potential cut through traffic.
Various design options exist to control traffic, including medians, right in right out, exit only, turn
prohibitions, etc. These options and others will be fully explored with the Stonegate Drive
residents as part of the detailed design of the River Road Extension which will occur as part of
Phase 3 of the Environmental Assessment process. A separate public meeting will be arranged
with residents to fully discuss the various options and their implications.
Citv Planninc Comments
The Region's decision to 'revisit' the environmental assessment for the River Road extension is
a huge step towards reconsidering a needed new east-west transportation route in Kitchener
while balancing today's environmental policies and other considerations. With respect to the
planning alternatives that are being considered as part of this EA project, any increased access
to the Highway system and the introduction of an alternate east-west route to Fairway Road is a
positive.
A significant portion of land within the Study Area is designated, zoned and currently contains
industrial businesses. Any planning alternative that provides direct routes to the
Highways/Arterial Road system allowing for alternate routing for trucks, vehicles, transit should
be beneficial for this industrial area and in general should provide an opportunity for continued
economic growth for Kitchener. The northerly portion of Hidden Valley is designated and zoned
for Business Park purposes and is dependent upon a road and servicing before development
can proceed. The finalization of the EA study and construction of a road with direct highway
access would provide opportunity for this area to develop. Any potential negative impact that an
alternative that introduces a new road to the subject area should be planned to have minimal
impact on the existing and future residential development within the subject area. Further, any
alternative should include a full turning movement intersection at Fairway RoadlWabanaki Drive
and allowance for transit, cycling, pedestrians and higher-order vehicles.
The Region should strongly consider the potential direct and/or indirect property impacts with
any alternative that has a road in the Hidden Valley area. The majority of lands within the
current ring road of Hidden Valley Road has undeveloped lands that are designated and zoned
for business park, residential and environmental protection purposes and would be significantly
impacted with any planning alternative in this EA Study.
Planning staff foresee that in the near future it may be time to revisit the land use designations
and zoning within the undeveloped portion of Hidden Valley, considering:
. A planning (and design) alternative may be chosen soon that is different than
previously approved and known when the land use for the Hidden Valley area was
previously contemplated. This may also yield different servicing options as well.
. The Province of Ontario's Places to Grow plan
. The Region of Waterloo's Regional Growth Management Strategy
. The planning of the Central Transportation Corridor
. Region's Transportation Master Plan updates
. Revised Provincially Significant Wetland boundaries
. Regional consideration of potential expansion of the Hidden Valley ESPA
. Future City Municipal Plan review
These matters could form the basis of future Community Plan revisions or other development
applications. The intent would be to make any changes to provide the appropriate locations and
designations of the environmental areas and employment and/or residential areas.
With respect to the proposed Planning Alternative 4C, there are several issues that should be
considered that include but are not limited to:
· The impact on lands currently identified and potential to be considered as significant
environmental areas;
· Future servicing options;
· Full access between the new road and the Hidden Valley area including the
undeveloped residential area immediately to the south;
· Potential driveway access from the new road to other adjacent parcels of land;
· Detailed impacts of the intersection type, size and design at existing Goodrich
DriveIWabanaki Drive/Hidden Valley Road. The City of Kitchener owns land in this
area; and
· Specifically, the amount of land and the potential of development on lands between
the new road and Highway 8 and proposed new ramp, and between the new road
and the current environmental designations and zoning to the south.
The review of the design alternatives will continue to be a critical piece of this study as it relates
to the potential impacts on the environmental areas and the remnant areas that may be
proposed for development within the northern portion of the Hidden Valley area. Further
analysis is required between the two proposed design speed alternatives (70 km/h and 80 km/h)
for Planning Alternative 4C. The location of the proposed road for the different design speeds
would have different impacts on the PSW, upland forest, potential access locations and amount
and location of land that may be proposed for development. For example, the design speed of
70km/h may have slightly less impact on one of the PSW's; however it would most likely leave
little, if any, land on the northeasterly side of the new road for potential development (of lands
currently designated and zoned for development). Indirectly, this may push considerations of
the land owner for development to the south side of the new road which would further impact
the upland forest area.
City Planning staff and other members of the City should remain involved during the detailed
design phase of this project.
Citv Environmental Comments
The east side of the study area contains the Hidden Valley Environmentally Sensitive Policy
Area (ESPA 27) and the Hidden Valley Provincially Significant Wetland (PSW) within the
perimeter of the existing Hidden Valley Road, and the Schneider Creek Valley at the west end
of the study area in the vicinity of the intersection of Manitou Drive and Bleams Road. The most
significant natural environmental issues are those associated with the ESPA and PSW in the
eastern portion of the study area.
An original alignment of the westerly extension of River Road from King Street East to Goodrich
Drive was approved and adopted by Regional Council and the City of Kitchener in 1981, and
again in 1994. Land uses and zoning were also determined at that time within the Hidden Valley
Planning Community based on the original alignment of the proposed extension.
Comprehensive environmental studies were conducted in the late seventies and early eighties
in support of the alignment originally approved. These studies recommended retaining only the
central wetland and southern esker of the Hidden Valley natural area within a designated ESPA
whose northern boundary was delimited by the proposed River Road extension (see Figure 3).
Due to changing environmental values, the Region elected to revisit the original alignment which
would have involved the removal of much of the northern portion of the Hidden Valley natural
area. Therefore, the South Kitchener Transportation Corridor Study (SKTCS) was commenced
as a Class Environmental Assessment in 2004. It was determined that any route should be
sensitive to natural conditions and approved development opportunities within the study area,
while effectively addressing transportation needs. Any new routing solution should maximize the
use of existing roads within the study area, taking into account roadway design standards.
As part of the SKTCS, an exhaustive inventory of natural and social environmental conditions
was conducted within the study area in 2004. Regional staff have summarized some of the
more important findings from these inventories as follows:
· Documented in the area were 25 different vegetation communities, 111 bird species,
344 different plant types, 28 mammal species, 17 reptile and amphibian species;
· Creeks within the study area do not support fish habitat, but ponds provide habitat for
amphibians and reptiles. No protected species were found;
· The quality of the woodlands within the study area is considered outstanding, and
include a number of rare plant species of regional and provincial significance; and
· Wildlife is diverse in the area, but while previous studies had identified several
pro~8r:Je:J S;J2C:t:'S, :^orl3 ar~! I~l;~"' fC.Uld :i\:.~':~/ ,:;\V:n; tl\ >lJrn=:.r eilc;r~2'.:.rl-.",e_';:;
Figure 3
· City of Kitchener and Waterloo Region records include two properties listed on their
Heritage Inventory along Hidden valley Road, and heritage buildings in the German
Mills area immediately north of the Bleams Road/Manitou Drive intersection. None
of these buildings are designated under the Ontario Heritage Act;
· A Stage 1 archaeological resource assessment was conducted of the study area,
and although small portions of land have had previous archaeological fieldwork, no
materials were recovered. However, since the study area was found to have
archaeological potential, any previously un-assessed lands will require further
inventory before they can be disturbed; and
· A preliminary geotechnical investigation of the study area concludes that it is a
significant groundwater recharge zone for the regional groundwater flow system, and
three regional wells are located off Manitou Drive near Bleams Road. As a result,
any new road construction will have to follow strict design and maintenance
standards.
The Preferred Alternative 4C (70 km/h option) is a vast improvement over the originally
approved alignment of the extension of River Road in terms of the impacts to the Hidden Valley
natural area. Most significantly this alternative does not separate the central wetland and
southern forested esker from the woodland and provincially significant wetland communities in
the northern portion of the natural area. Depending on a positive resolution to protect the natural
lands currently designated and zoned for development, such a route alternative results in the
highest probability of conserving a large contiguous portion, and the vast majority, of the Hidden
Valley natural area including the PSW and the northern portion of the natural area now being
recommended for inclusion within ESPA 27.
Citv Encineerinc Comments
The proposed alignment of the River Road Extension and the expansion of the ESPA will result
in significant issues from a servicing standpoint. Servicing may require some form of crossing of
both the ESPA and the PSW. This crossing would most likely be located at the narrowest point
of the PSW along the original alignment of the proposed extension. This would allow for the
servicing of all lands previously identified as developable.
Locating the roadway to the Alternative 4C alignment may require the construction of two (2)
separate sanitary sewage lift stations and additional lengths of forcemain. Alternatively any
lands which may remain developable could be serviced by means of private septic systems.
However, given that preliminary geotechnical investigations have identified this area as having a
high potential for groundwater recharge it is not likely that approval for this type of development
would be obtained.
From a servicing standpoint, Engineering would support the original alignment as proposed in
previous studies and believe with appropriate mitigation that alignment could be constructed.
Alternative 4C is an acceptable alternative; however, the additional cost of providing 2 lift
stations and forcemains may limit the development potential should there be significant
reductions in potential development lands.
Citv Environmental Committee Comments
On January 19, 2006, Kitchener's Environmental Committee resolved that the Committee
supports Alternative 1 only (Do Nothing: Baseline). They also recommended, similar to the
Region's Ecological and Environmental Advisory Committee (EEAC), that the boundaries of
ESPA 27 be expanded northward.
FINANCIAL IMPLICATIONS:
None related to the road construction. This is a regional project and will be funded from their
capital budget. At this time, subject to final Regional Council approval, it is scheduled for
construction starting in 2008 and completion in 2009.
There will however be future capital and operating costs related to the servicing of land as it
develops and may include the development of one or two pumping stations. There may also be
requests to consider the purchase of a portion of the developable land in order to maintain as
much of the natural area as possible. These costs will not be fully known until the extent of
development is confirmed with area landowners.
10
COMMUNICATIONS:
Extensive public communications have been part of this project. These included a public open
house and presentation on May 27, 2004, a stakeholder workshop on July 27, 2004 and further
public open houses on January 19, 2005 and October 4, 2005. In addition, a summary of this
report has been presented to the City's Environmental Committee on Apr 20,2006 and the
Economic Development Advisory Committee on April 26, 2006.
CONCLUSIONS:
· The Class Environmental Assessment for the South Kitchener corridor is nearing
completion with unanimous Steering Committee selection of Alternative 4C as the preferred
alternative;
· Extensive Public Consultation has occurred over the course of the study involving local
residents, businesses, interested public, special interest groups and review agencies.
Three Public Consultation Centres and a workshop were held where active public
participation was achieved;
· The Ministry of Natural Resources and the Grand River Conservation Authority are
supportive of Alternative 4C (strongly encourage a design speed of 70 km/hr). Both
agencies will continue to be part of the process in order to have input on mitigation
techniques for minimizing disruption to the natural environment.
· The public's view has been consistent on the point that there are transportation issues in
the area that need to be addressed. Many have also stressed the importance of
maintaining the natural area that exists today.
· The Environmental committees of the Region of Waterloo and the City of Kitchener have
recommended that the boundaries of ESPA 27 be expanded.
John P. McBride Director
Transportation Planning
Brandon Sloan
Planner
Rob Shamess, P.Eng
Director of Engineering
Barbara Steiner
Environmental Planner
11
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