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HomeMy WebLinkAboutDTS-06-077 - South Kitchener Transportation Corridor Study ) c,_> KITCHENER Development & Technical Services ~ Report To: Date of Meeting: Submitted By: Prepared By: Ward Involved: Date of Report: Report No.: Subject: Chair Weylie and Members of the Development and Technical Services Committee May 1 , 2006 John McBride Robert Shamess, Brandon Sloan, Barb Steiner, John McBride Ward 2 - Chicopee - Grand River Ward 3 - Fairview - Gateway April 26, 2006 DTS 06-078 SOUTH KITCHENER TRANSPORTATION CORRIDOR STUDY RECOMMENDATIONS: "That Council 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 Regional Municipality of Waterloo be informed of Council's preference and be forwarded a copy of this report for the Region to consider the comments and issues therein." 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, as 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/h). 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 report was presented to the City's Environmental Committee on April 20, 2006 where they voted to support Alternative 1 (Do Nothing: Baseline) and expand the ESPA 27 northward. In addition, it was also presented to the City's Economic Development Advisory Committee on April 26, 2006. Concern was expressed by some members of the Committee that congestion on Fairway Road could impact the ability for motorists to exit Hwy 8 and use Wabinaki Drive to access the Hidden Valley area. There was also some support for a more direct route between the end of Goodrich Drive and the crossing of Hwy 8, although this would have serious impacts on the ESPA. The recommendation in the report was put to the Committee and a tie vote ensued. 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 within 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. To address the transportation needs in the South Kitchener area the following alternatives were initially developed. Alternative 1 : Do-Nothing · No River Road Extension · Assumes planned road improvements within the area, including Highway 8 widening, Fairway Road, Block Line Road and Wabanaki Road extensions and Manitou Drive widening, projects were also common to all other planning alternatives. · Included an increase in the transit mode share from 5% in 1996 to 7% in the AM Peak Hour by 2016. Alternative 2: River Rd. Extension · Original alignment as approved in 1984 · Full Highway 8 interchange · Bike lanes, and sidewalks · 6-lanes on Fairway Road between King Street and Wilson Avenue. Alternative 3: Transit Emphasis · Partial River Road Extension from King Street to Highway 8, Goodrich Drive Extension to Manitou Road · Fairway Road widening (6-lanes from 4-lanes) King Street to Manitou Drive · External to the study area, the transit mode share is assumed to be 7%, within the study area the transit mode share was increased to 15%. Alternative 4: River Rd. Extension plus Transit (Bus-only lanes on River Road) Combination of Alternatives 2 and 3 with the River Road Extension aligned around the edge of the Hidden Valley area Partial Highway 8 interchange Directional ramp off of Fairway Road to southbound Highway 8. Includes the widening of Homer Watson Blvd to 6-lanes from Highway 401 to Ottawa Street External to the study area, the transit mode share is assumed to be 7%, within the study area the transit mode share was increased to 15%. Alternative 5: Multi-Use River Rd. Extension · Similar to Alternative 2 but uses a road alignment that aligns closely with the existing Hidden Valley Road (transit-only lanes on River Road extension) · External to the study area, the transit mode share is assumed to be 7%, within the study area the transit mode share was increased to 15%. 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. The alternatives below were developed in response to input from the public, agencies and Steering Committee on the initial five alternatives. Alternative 1 A: Alternative1 Do-Nothing with Development Cap - A development cap was assumed in the area. Alternative 3A: Transit Emphasis with Partial Highway 8 Interchange - Similar to Alternative 3 along with a partial Highway 8 interchange on the east side of the highway. Alternative 4A: Mixed Traffic Lanes - Similar to Alternative 4 but without bus lanes on the River Road extension Alternative 4B - Similar to Alternative 4A but with no Homer Watson Widening Alternative 5A River Road Extension with Mixed Lanes - Similar to Alternative 5 with the Bus Only/HOV lanes open for mixed traffic use. 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 5A 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 5A 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 4B and 5A Subsequent to the last PIC, the MTO has confirmed that they would not accept Alternatives 4B and 5A 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. Alternative 4C River Road Extension with Partial 3-directionallnterchange Alternative 4C (Figure 1) was developed with all the same design elements as Alternative 4B, except the east to south ramp on Fairway Road to Highway 8 was removed and a 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 without the higher costs of constructing a highway ramp from Fairway Road. Given the MTO improvements at the Fairway Road interchange that are under construction now, this exiting movement may be able to be accommodated with consideration for a full-turn access at Wabanaki Drive and Fairway Road. Alternative 6 River Road Extension with Full Interchange <no Ramp Terminal Roundabouts) Alternative 6 was developed with all the same design elements as Alternative 5A, except without a roundabout. This alternative was evaluated to compare the amount of the Hofstetter wetland PSW and forest area impacted by a River Road Extension with a full highway interchange compared to Alternative 4C. The impact area is larger owing mainly to the need for ramp terminal setbacks required by MTO on the River Road extension. It is expected that the Hofstetter wetland would be lost because of fill placement. In order to accommodate the MTO required spacing of signalized intersections, the Alternative 6 road alignment would have further penetrated into the Sugar Maple area and come closer to the current ESPA boundary. This alternative was not considered further because of the environmental impact. 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 preferred alternative for the South Kitchener Transportation Corridor Study is Alternative 4C (Figure 1) with a design speed of 70 km/h, 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. The new corridor is recommended to have pedestrian facilities and cycle lanes on both sides. 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. 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. Figure 2 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 . The 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; · Wildlife is diverse in the area, but while previous studies had identified several protected species, none are now found likely owing to human encroachment; 10 · 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. Figure 3 11 The Preferred Alternative 4C 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. The 4C alignment alternative does appear to limit environmental impacts, however, it will necessitate significant modifications to the proposed servicing concept for these lands. Specifically, two (2) separate sanitary sewage lift stations and additional lengths of forcemain would be required. There is the potential that the modified alignment will impact the developable land considerably, and as such, engineering may need to consider extending, at the very least, a servicing corridor through a portion of the environmentally sensitive lands (with appropriate mitigation measures). 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. The updated report which included the preferred alternative 4C was presented to the Environment Committee on April 20, 2006. The discussion centred on the pristine quality of the ESPA and the potential impact on the area that will result from the development of this road and the ensuing residential and business park development. Suggestions included the rezoning of the area to stop development or the City purchasing the developable land and maintaining it in its natural state. The committee reaffirmed their recommendation from the January 19, 2006 meeting to support Alternative 1 (Do Nothing: Baseline) and expand the ESPA 27 northward. Citv Economic DeveloDment Advisorv Committee Comments This report was presented to the Economic Development Advisory Committee (EDAC) on April 26, 2006. Concern was expressed by some members of the Committee that congestion on Fairway Road could impact the ability for motorists to exit Hwy 8 and use Wabinaki Drive to access the Hidden Valley area. There was also some support for a more direct route between the end of Goodrich Drive and the crossing of Hwy 8, although this would have serious impacts 12 on the ESPA. The recommendation in the report was put to the Committee and a tie vote ensued. 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. 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/h). 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. 13 John P. McBride Director Transportation Planning Rob Shamess, P.Eng Director of Engineering Brandon Sloan Planner Barbara Steiner Environmental Planner 14 <<S (I) ~ >- " :3 U5 I <( >< :c c (I) Q. 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