City of Hamilton
CITY OF HAMILTON TRUCK ROUTE MASTER PLAN STUDY
FINAL REPORT
APRIL 2010
IBI G ROU P FINAL REPORT
TABLE OF CONTENTS
DOCUMENT CONTROL
Client: City of Hamilton
Project Name: City of Hamilton Truck Route Master Plan Study
Report Title: City of Hamilton Truck Route Master Plan Study
IBI Reference: 20492
Version: V 1.0 - Final
Digital Master: J:\20492_Truck_Route\10.0 Reports\TTR_Truck_Route_Master_Plan_Study_FINAL_2010-04-23.docx\2010-04-23\J
Originator: Ron Stewart, Matt Colwill, Ted Gill, Scott Fraser
Reviewer: Ron Stewart
Authorization: Ron Stewart
Circulation List:
History: V0.1 - Draft
April 2010 IBI G ROU P FINAL REPORT
TABLE OF CONTENTS
1. INTRODUCTION ...... 1 1.1 Purpose of the Truck Route Master Plan ...... 1 1.2 Background ...... 1 1.3 Master Plan Scope ...... 2 1.4 Master Plan Goals and Objectives ...... 3 1.5 Consultation and Communication ...... 4 1.6 Implementation and Interpretation of the Truck Route Master Plan ...... 5 1.7 Organization of Report...... 5
2. BACKGROUND DOCUMENT REVIEW ...... 6 2.1 Airport Master Plan Update (2004) ...... 6 2.2 Hamilton Goods Movement Study Final Report (2005) ...... 7 2.3 Development of Policy Papers for Phase Two of the Transportation Master Plan for the City of Hamilton: Rural Road Standards Policy Paper (2005) ...... 8 2.4 Short Sea Shipping Market Study (2005) ...... 9 2.5 Hamilton Transportation Master Plan, Volume 2: Development of Policy Papers for Phase Two of the Transportation Master Plan for the City Of Hamilton – Summary of Proposed Recommended Policies (2005) ...... 9 2.6 Red Hill Valley Project (RHVP) Fact Sheet: Traffic (2005) ...... 10 2.7 Southern Ontario Gateway Council Strategic Plan: Building a Foundation for Prosperity (October 2006)...... 11 2.8 Hamilton Transportation Master Plan, Volume 1: Class Environmental Assessment Report (2007) ...... 11 2.9 Hamilton Transportation Master Plan, Volume 3: Public and Agency Consultation Report (2007) ...... 13 2.10 City of Hamilton Economic Development Review (2007) ...... 13 2.11 Metrolinx Green Paper #5: Moving Goods and Delivering Services: Development of a Regional Transportation Plan for the Greater Toronto and Hamilton Area (2008) ...... 14 2.12 Road Classification and Right-of Way Width Project (2009) ...... 15
3. STRATEGIC VISION ...... 16 3.1 Introduction ...... 16 3.2 Truck Route Master Plan Goals ...... 18 3.3 Truck Route Master Plan Benefits ...... 18 3.4 Truck Route Master Plan Key Elements ...... 20
4. EVALUATION METHODOLOGY ...... 22 4.1 Other Key Considerations ...... 22
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TABLE OF CONTENTS (CONT’D)
4.2 Analysis Approach ...... 24 4.3 Hamilton Downtown Evaluation ...... 31
5. DATA COLLECTION AND CONSULTATION ...... 37 5.1 Consultation ...... 37 5.2 Field Data ...... 41 5.3 Collision Data ...... 42
6. DEVELOPMENT OF TRUCK ROUTE NETWORK ...... 43 6.1 Geographic Regions ...... 43 6.2 Alternative 1 Network ...... 53 6.3 Alternative 2 Network ...... 56 6.4 Alternative 3 Network ...... 59
7. MANAGING THE TRUCK ROUTE NETWORK ...... 84 7.1 Time-of-Day/Time-of-Year Restrictions ...... 84 7.2 Engine Brake Signage ...... 85 7.3 Long Combination Vehicles ...... 86 7.4 Restrictive Signage ...... 86 7.5 “Specified Users” Classification ...... 87 7.6 Enforcement ...... 87 7.7 Education ...... 88
8. CONCLUSIONS ...... 88
9. RECOMMENDATIONS ...... 89 9.1 Recommended Truck Route Network ...... 89 9.2 Capital Roadway Improvements ...... 91 9.3 Long-Term Management ...... 92
List of Exhibits
Exhibit 2-1: Hamilton Airport Landside Access ...... 7 Exhibit 3-1: Industry Clusters ...... 19 Exhibit 4-1: Roadway Classification ...... 25 Exhibit 4-2: Roadway Classifications – Urban Area Enlargement ...... 26 Exhibit 4-3: Draft Urban Structure ...... 27 Exhibit 4-4: City of Hamilton Business Parks ...... 28 Exhibit 4-5: Rural Land Use Designations ...... 28 Exhibit 4-6: Analysis Approach Flow Diagram ...... 31 Exhibit 4-7: Downtown Truck Patterns ...... 32
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TABLE OF CONTENTS (CONT’D)
Exhibit 4-8: Perimeter Road Concept ...... 33 Exhibit 4-9: Existing Downtown Truck Routes ...... 35 Exhibit 4-10: Downtown Road Classifications ...... 35 Exhibit 5-1: Consultation Flow Diagram ...... 38 Exhibit 6-1: Waterdown/East Flamborough ...... 44 Exhibit 6-2: West Flamborough ...... 46 Exhibit 6-3: Glanbrook/Airport ...... 47 Exhibit 6-4: Parkways Corridor ...... 48 Exhibit 6-5: Stoney Creek ...... 49 Exhibit 6-6: Downtown Core ...... 50 Exhibit 6-7: East Hamilton/Portlands ...... 51 Exhibit 6-8: West Hamilton/Dundas ...... 52 Exhibit 6-9: Alternative 1 – “Do Nothing” Truck Route Network ...... 54 Exhibit 6-10: Alternative 1 – “Do Nothing” Truck Route Network (Zoom) ...... 55 Exhibit 6-11: Alternative 2 Truck Route Network ...... 57 Exhibit 6-12: Alternative 2 Truck Route Network (Zoom) ...... 58 Exhibit 6-13: Arterial Links Not Included in the L1 System ...... 59 Exhibit 6-14: Level 2 Analysis Variance Summary ...... 60 Exhibit 6-15: Alternative 3 Truck Route Network ...... 82 Exhibit 6-16: Alternative 3 Truck Route Network (Zoom) ...... 83 Exhibit 7-1: Engine Brake Signs...... 85 Exhibit 9-1: Recommended Additions and Upgrades ...... 89 Exhibit 9-2: Recommended Removals ...... 90
List of Appendices
Appendix A – PIC Summary Reports Appendix B – Technical Advisory Committee Appendix C – Level 1 Analysis Results Appendix D – Level 2 Analysis Results Appendix E – City of Hamilton By-Law and Schedules
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1. INTRODUCTION
This introductory section discusses the purpose, scope, goals and objectives of the Truck Route Master Plan, provides background for the study, and describes the organization of the remainder of this report. 1.1 Purpose of the Truck Route Master Plan
The City of Hamilton Truck Route Master Plan (TRMP) provides a comprehensive, consolidated update to the existing truck route network. Furthermore, it provides recommendations for future action, policies for truck route signage, and a methodology for dealing with truck route network issues in the future.
The Truck Route Master Plan Study is a key component of the Transportation Master Plan as part of the Council-approved Growth Related Integrated Development Strategy. The Goods Movement Cluster, including air, port, road, rail, warehousing, logistics and distribution, has been identified within the Council approved Economic Development Strategy and listed within the related Draft soon to be presented for input. The Truck Route Master Plan Study compliments other initiatives including the Metrolinx Urban Freight Study, Niagara to GTA Corridor Environmental assessment, Ontario Quebec Continental Gateway and Trade Corridor as well as the McMaster Institute for Transportation and Logistics, and Southern Ontario Gateway Council activities. 1.2 Background
In mid-2005 City Council approved a study to review the truck route system in the City of Hamilton. In 2007, the Truck Route Sub-Committee of the next Council met for the first time, approved a mandate and directed staff to proceed with the project.
The city‟s traffic by-law requires a vehicle weighing more than 4500 kg to follow the city‟s designated truck route system. Vehicles are only permitted to deviate from the truck route system when making a delivery or a pick-up and to do so they must take the shortest distance from the truck route system to the point of pick-up or delivery and then return immediately via the shortest route to the truck route system. Therefore, trucks can legally travel on streets that are not designated truck routes.
The designated truck route system has not been comprehensively reviewed in a very long time, if ever. The characteristics of transportation in Hamilton have changed over the years, with reduced emphasis on heavy industry in the north-east quadrant of the lower city, and with the implementation of major transportation facilities such as the Lincoln Alexander Parkway / Red Hill Valley Parkway system.
The City of Hamilton is a major transportation centre in Ontario. It is a major port, serves as an air cargo hub for express packages (i.e. courier companies), and it is strategically located for road and rail routes that serve both domestic and trans-border trade. Previous studies, dating back to 1995 have dealt with trucking strategies, recognized the importance of the truck route system, and promoted its continuity.
While the driving force behind the decision to undertake a truck route study was primarily the impact of heavy trucks on areas such as residential and business improvement areas, trucking has significant impact on the city‟s economic development and growth and how the city is positioned as a major transportation hub. In the new millennium, virtually everything that is used by industry, commerce or private consumers in the City of Hamilton is delivered by truck. Therefore, on one
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hand, trucks are vital to the economic health of the city, and in fact the city is attempting to position itself as a major transportation hub due to its excellent rail, air and water transportation services, allowing Hamilton to become a trans-shipment point. On the other hand, heavy vehicles, particularly large trucks, cause negative impacts through visual impacts, real or perceived safety issues, and noise issues. The purpose of the truck route study can be characterized by the classic “three-legged stool” where the social and environmental impacts of heavy vehicles on shopping areas and local residences need to be balanced against the financial and economic advantages of trucks toward the city‟s prosperity.
One of the emerging challenges with maintaining the truck route network is that there have recently been a number of requests to remove individual links due to local concerns. This has the impact of fragmenting the truck route network and undermining its effectiveness. Therefore, an important policy area is to maintain, protect and, if possible, enhance the existing system of designated truck routes.
Ultimately, the definition of a truck route system for Hamilton must be equitable for both residents and industry. The truck route network must allow for the efficient movement of goods in a manner that is safe and respective of the environment.
The approach to examining, and eventually defining the truck route network relies on a combination of technical analysis, public and stakeholder input and detailed route by route assessments. 1.3 Master Plan Scope
It is important to clearly state the scope of a transportation master plan. According to the Municipal Class Environmental Assessment Process (2007), a master plan is defined as:
“A long range plan which integrates infrastructure requirements for existing and future land use with environmental assessment principles.”
“The scope of a Master Plan is broad and usually includes an analysis of the system in order to outline a framework for future works and developments. Master Plans are not typically undertaken to address a site-specific problem.”
Following on these Environmental Assessment definitions, a transportation master plan examines the overall transportation system, not site or area-specific components of that system such as specific roads or intersections. Where roads and intersections are considered, they are reviewed in the context of the larger area road network in which they function. Other descriptors of a transportation master plan that have established the scope of this project are:
Comprehensive, strategic-level planning;
Provides direction for municipal transportation investment and priorities;
Multi-modal scope considering all modes of transportation under municipal jurisdiction including roads, transit, cycling and walking;
Long range, planning 20-25 years into the future, usually in increments of the short term (0-5 years), medium term (5-10 years) and long term (10-20 years). In some cases the longer 25 year-plus planning horizon is included for transportation corridor protection;
The master plan sets policy direction for the municipality‟s Official Plan;
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A master plan is a package of actions, with no single solution to meet existing and future needs;
Master plans should be dynamic documents that are flexible to changing conditions over time;
In Ontario, master plans should be prepared to satisfy Phase 1 and 2 of the Municipal Class Environmental Assessment process dealing with Need or Opportunity, and Alternative Planning Solutions; and
The master plan is custom-made for the municipality it covers, while often also referring to best practice experience from comparable municipalities. 1.4 Master Plan Goals and Objectives
The goal and objectives developed by the City of Hamilton for this Truck Route Master Plan are described below.
1.4.1 TRUCK ROUTE MASTER P LAN GOAL
To develop a new comprehensive Truck Route Master Plan that recommends a truck route network, and the policies and implementation strategy that will assist the City in managing the truck route network over the next five years.
1.4.2 TRUCK ROUTE MASTER P LAN OBJECTIVES
The objectives are as follows:
1. Identify the purpose and goals of a truck route system, along with technical justification, in order to achieve the goals of the truck route system;
2. Set the basic criteria for selecting routes to be included in such a system; and a review of the overall system structure, specific “hot spots”, and boundary roads;
3. Satisfy Phases 1 and 2 of the Municipal Class EA process dealing with transportation system problems or opportunities, and alternative planning strategies respectively;
4. Summarize the information that should be contained in the City‟s by-law to support the truck route system; and the by-law and by-law schedules to provide a new comprehensive by-law;
5. Develop the operational specifics such as signing methodology, including engine brakes noise issues; and
6. Revise the truck route mapping to be compatible with the City‟s GIS system.
1.4.3 MUNICIPAL CLASS ENVIRONMENTAL ASSESSMENT CONFORMITY
The TRMP has been prepared following the Master Planning Process of the Municipal Class Environmental Assessment Process 2007 (Class EA), which is a five-phase process required to initiate construction of municipal roads, and water and wastewater projects in Ontario.
The TRMP is a stand-alone document with a broad level of assessment to describe the overall City of Hamilton Truck Route Network, and provides the context for implementing specific projects within
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this system by satisfying Phases 1 and 2 of the Municipal Class EA Process dealing with the system problems and opportunities, and alternative solutions respectively. More detailed investigations will be required for specific Schedule B and C projects recommended in this Plan.
Schedule B projects will require the filing of the project file for public review, while Schedule C projects will have to fulfill Phases 3 and 4 of the Class EA process prior to filing an Environmental Study Report (ESR) for public review. In both cases, the public review period includes a Part II Order appeal mechanism, where an individual can make a written request to the Minister of the Environment to extend the project to a higher level of EA investigation. A Part II Order request can only be made on a project-specific EA, and not on a master plan on which such a project is based. Schedule A and A+ projects generally involve normal maintenance and operational activities with no or minimal environmental effects, and so are pre-approved.
The study was a master planning exercise. This means that it was conducted at a higher level and decisions were made based on overall principles. While some detailed reviews were made of more controversial sections, the study was not intended to, and did not, review the impacts of changes in the truck route system on property values, physical impacts to specific properties or geotechnical road structures. Such detail is not consistent with a master planning study and would have greatly expanded the project scope and cost. In any case, since the large majority of changes recommended by this study are removals of road segments from the truck route system, the transfer of traffic to alternate parallel routes which are already truck routes was assumed to have minimal overall effect on these factors.
The guiding principles that evolved from the study are: Balancing social, environmental, and economic factors; Consistency in decision-making; Minimizing the demand for enforcement; Minimizing dead ends in the network; Transferring of truck traffic to higher quality facilities; and Matching relationship of trucks to road category and roadway configuration. 1.5 Consultation and Communication
The study included extensive consultation of stakeholders. The consultation process has consisted of three coordinated streams:
The Truck Route Master Planning process has been directed and overseen by the Truck Route Sub-Committee of Public Works Committee;
A Technical Advisory Committee (TAC) was created. It consisted of key industry stakeholders, including representatives of the port, airport, Chambers of Commerce, trucking associations, Hamilton Police Service, the Ministry of Transportation Ontario and the Ministry of the Environment; and
The Truck Route Master Plan has followed the Public Consultation requirements of Municipal Class Environmental Assessment (EA) process, as per the Municipal Engineers Association document (Oct. 2000, as amended in 2007). Public consultation included two sets of public information centres and a web portal for public information and input.
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A more detailed discussion of the consultation and communication activities undertaken as part of the Truck Route Master Plan study is provided in Section 5.1. 1.6 Implementation and Interpretation of the Truck Route Master Plan
When the current truck route by-law was consolidated after amalgamation in 2001, a number of minor housekeeping errors were introduced. As well, the truck route schedule is segregated by former municipalities. The multiple truck route by-law schedules sections have been consolidated into a single schedule, and the known errors relative to the way the current truck route system is signed and operated have been corrected as part of this process.
As part of the Truck Route Master Plan study, the issue of engine retardant brakes sometime known as “jake brakes” was addressed. When properly maintained engine brakes on large trucks are not supposed to make any more noise than the same vehicle travelling uphill. However it is known that poorly maintained or intentionally modified engine brakes can be quite loud. A procedure was developed recommending the process for dealing with engine brake noise complaints, and when signing for such complaints is appropriate.
The signing system used for the truck route system in the City of Hamilton is a “permissive” system. This means that the routes which are truck routes are clearly defined. This system requires far less signing than the alternative which would be a “prohibitive” system in which all routes which are not truck routes have to be signed. However the Sub-Committee noted that there are instances in which additional signing in the form of prohibitive signing may be required in order to re-enforce areas with poor compliance or areas in which drivers maybe confused. A policy on the limited use of prohibitive signing in conjunction with the city‟s permissive signing system has been included in this study.
It is recognized that the changes recommended in the TRMP may generate issues that need further discussion. It is also recognized that new truck route related issues will arise regularly. This is particularly true of existing and proposed roadways in developing areas. In the past, truck route status was typically not considered or explicitly stated in planning reports. Going forward, it is important that this be formally considered and addressed, and that roadways be considered for inclusion in the City of Hamilton truck route network at such time as industrial or commercial demands would justify the change, with the appropriate roadway changes. The TRMP is not intended to provide a static truck route system that will not change in the future, but to update the system to current conditions. 1.7 Organization of Report
The report is organized as follows:
Section 2 is a summary of the Background Document Review. It provides the highlights of documents dealing with transportation planning issues in Ontario, and within the City of Hamilton.
Section 3 presents the Strategic Vision for the truck route network.
Section 4 describes the truck route network Evaluation Methodology.
Section 5 discusses the Consultation component of the study; it also includes a summary of the Data Collection effort.
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Section 6 provides a comprehensive explanation of the Development of the Truck Route Network.
Section 7 addresses Managing the Truck Route Network.
Sections 8 and 9 provide a summary of the Conclusions and Recommendations. 2. BACKGROUND DOCUMENT REVIEW
To gain a better understanding of the complexities involved with goods movement and truck routing through and within the City of Hamilton, a review and assessment of secondary source materials was undertaken. The following sections identify the background documents that were reviewed, and provide a summary of the relevant information contained within those documents. The documents are presented in chronological order of their release. As a result, some of the information presented for the older documents may be superseded by information contained within the more recent documents. This succession of information illustrates the dynamic nature of ideas and policies related to goods movement. 2.1 Airport Master Plan Update (2004)
The primary purpose of the Airport Master Plan is to establish an orderly development concept for John C. Munro Hamilton International Airport. At the end of 2004, a new airport expressway (Highway 6) opened. This nine kilometre two-lane highway connects Hamilton International Airport with Highway 403 to the northwest and Upper James Street to the southeast. Expansion plans call for New Highway 6 airport expressway to be upgraded to a limited access four-lane highway between Highway 403 and Hamilton International Airport within the next 5 to 10 years (medium term).
Implementation of the recommendations of the Airport Master Plan would improve commercial vehicle access to the airport and make the airport more attractive as a cargo hub within the Golden Horseshoe.
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Exhibit 2-1: Hamilton Airport Landside Access
2.2 Hamilton Goods Movement Study Final Report (2005)
The primary objective of this study was to examine the technical potential of the City of Hamilton to become an efficient, integrated and sustainable regional intermodal transportation centre within the Greater Golden Horseshoe and the Greater Toronto Area-Windsor-Sarnia Trade Corridor.
Good Movement Vision for Hamilton
Medium Term 5-10 years
Hamilton is able attract many industries that rely on just-in-time delivery because of the availability of 24-hour operations at air, marine and intermodal facilities. This gives Hamilton a competitive advantage in the region. Hamilton also has sufficiently large employment lands assembled, serviced and ready for these new industries (that are comprises of a variety of economic clusters).
Time Frames For Action
Short Term 1-5 Years
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City of Hamilton: Should resolve freight bottlenecks and specify clearance requirements for truck routes.
Province of Ontario: Should plan network investments in conjunction with Hamilton Master Plan development, and provide funding for designated infrastructure improvements.
Medium Term 5-10 years
City of Hamilton: Should implement recommendations of the Transportation Master Plan regarding strategic infrastructure.
Province of Ontario: Should expand provincial highway system where needed (established through Environmental Assessment Master Plan process).
An improved truck route plan will be critical in transforming the City of Hamilton into an efficient, integrated and sustainable regional intermodal transportation centre in Southern Ontario. 2.3 Development of Policy Papers for Phase Two of the Transportation Master Plan for the City of Hamilton: Rural Road Standards Policy Paper (2005)
This report focuses on the current design standards for rural roadways, and whether higher standards (e.g., paved shoulders, pedestrian and cycling amenities, etc.) should be considered. There is no detailed discussion regarding Hamilton and local truck routes. The following policies were recommended for consideration in the City‟s Transportation Master Plan:
Recommended Policy 1
Use the proposed core roadway classification system and associated enhancements/variations as the basis for considering rural road standards.
Implementation
Adopt the proposed road classification system that delineates separate categories for Rural Arterials, Rural Collectors and Rural Local roads. Delineation of sub-categories of rural roads may be considered where warranted as part of area Transportation Planning studies, but will not form part of the official classification system.
The Rural Roadway Standards will be used not only for the design, construction and maintenance of rural roads, but also to determine the warrants for traffic operation and control changes on rural roads such as, but not limited to, right-of- way widths, use of stop controls and construction of exclusive turn lanes.
Recommended Policy 2
Follow “Desirable” or maximum design standards, and “Acceptable” or minimum design standards as warranted by specific needs and conditions.
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Implementation
Maintain Special Character Roads according to acceptable minimum engineering standards and practices, to levels that will not increase their design capacity.
The decision to use Desirable vs. Acceptable Rural Roadway Standards will be dictated by the category of roadway involved, its operating conditions (traffic volume and type), physical conditions (i.e. terrain), adjacent land use and access needs, and available financial resources.
Inclusion of special features such as paved shoulders, bike lanes, and adjacent multi-user paths will be assessed during preliminary design stages and other planning process and will take into account adjacent development, potential user needs, on-going maintenance requirements and potential drainage issues.
Recommended Policy 3
Consider the need for facilities to accommodate pedestrians, persons using mobility aids and cyclists on all rural roads, and attempt to provide paved shoulders on rural roads where cycling is prevalent and sidewalks where the roadway leads to a school or community facility.
Implementation
Develop and adopt design standards for rural roads with paved shoulders
Conduct on-going needs assessments to identify rural roads where cycling/pedestrian facilities may be warranted. 2.4 Short Sea Shipping Market Study (2005)
This study examines the potential to shift cargo currently moving by rail or road between the deep- sea port of Halifax and the inland market and Great Lakes port of Hamilton, Ontario. It focuses on both overseas transhipment cargo as well as domestic intermodal cargo.
There is no detailed discussion regarding Hamilton and local truck routes. 2.5 Hamilton Transportation Master Plan, Volume 2: Development of Policy Papers for Phase Two of the Transportation Master Plan for the City Of Hamilton – Summary of Proposed Recommended Policies (2005)
Goods Movement
Recommended Policy:
Maintain, protect and enhance the existing goods movement network in Hamilton to support the economic development strategy.
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Implementation:
The Strategic Goods Movement Network should be refined in Phase 3 of the Transportation Master Plan by identifying future infrastructure requirements and ensuring it is compatible with growth policies in the Official Plan
Investigate strategies to enhance the road network to improve opportunities for the integration of modes.
Continue utilizing a passive approach towards truck route designation, considering truck route restrictions on local streets only in special circumstances.
Review the truck route network to identify missing links and locations where roadway geometry can pose problems for trucks. To address these problems, develop routing and/or infrastructure options.
Ensure that goods movement issues are part of the planning process in the evaluation of transportation network decisions is EAs and TMPs. This includes routing options for new facilities, roadway geometric standards, and on-street parking and loading regulations.
Refine and expand the existing traffic count program to include more detailed truck classifications.
The recommended goods movement strategy policies contained in the Hamilton Transportation Master Plan seek to improve and enhance the existing good movement network through the identification of problems, making strategies compatible with existing plans and polices and the integration of modes.
2.6 Red Hill Valley Project (RHVP) Fact Sheet: Traffic (2005)
Traffic Congestion
A total of 3,300-3,500 truck trips per day could be diverted from local streets onto the Red Hill Creek Expressway.
On the Centennial Parkway, there are approximately 90 trucks travelling northbound and approximately 110 trucks travelling southbound during the morning peak period (7- 9 a.m.).
If the Red Hill Creek Expressway is operational, approximately 70-80% of truck traffic on the Centennial Parkway and potentially 85% of Claremont Access truck traffic could be diverted there.
Without the Red Hill Creek Expressway, there will be a capacity deficiency across the Escarpment crossings in both the short term (2006) and the long term (2021).
The Red Hill Valley Project will reduce and divert truck traffic from existing highways and local streets. Without this project, capacity deficiencies will be present at Escarpment crossings in the short and long terms.
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2.7 Southern Ontario Gateway Council Strategic Plan: Building a Foundation for Prosperity (October 2006)
This strategic plan, commissioned by the Southern Ontario Gateway Council (SOGC) has four primary objectives:
Establish a vision for the SOGC;
Establish a set of priorities and policy initiatives to be addressed;
Provide a comprehensive reference/information guide for the SOGC; and
Act as a communication tool to increase public and government awareness of the importance of the Southern Ontario region‟s transportation system.
Key Strategic Issues: 9. Niagara to GTA Corridor
In 2000, the Ontario Ministry of Transportation initiated the Niagara Peninsula Transportation Needs Assessment Study. The results of this study were the development of a long-range "Transportation Development Strategy" to help guide provincial and municipal transportation planning in the Niagara Peninsula area. A key recommendation of the strategy is to develop a $1.5-billion Niagara-GTA corridor from the Canada/US border (at Fort Erie), through Hamilton, and connecting with the 400- Series Highway network in Southern Ontario.
Action Plan: Network Efficiency
Commercial vehicle only lanes – Adding lanes or designating existing lanes on new and proposed highways for commercial traffic only is a new and innovative idea that has never been tried in Ontario. Commercial vehicle only lanes would separate heavy vehicles (i.e. trucks) from existing traffic, and has the potential to decrease driver- vehicle conflicts, reduce congestion, and
Long combination vehicles (LCVs) – LCVs are truck tractors with two or three trailers. Allowing LCVs on Ontario highways will improve productivity, reduce transport costs, increase traffic flow and reduce emissions. Currently, LCV are allowed to operate by special permit in Quebec, Manitoba, Saskatchewan and Alberta.
The implementation of recommendations from the SOGC Strategic Plan, including ITS, commercial vehicle only lanes and LCVs will improve the efficiency of the existing roadway network and potentially reducing commercial vehicle volume on truck routes. 2.8 Hamilton Transportation Master Plan, Volume 1: Class Environmental Assessment Report (2007)
Freight/Goods Movement Systems: Trucks
The impacts of commercial vehicles on roads in Hamilton include:
Trucks loading and unloading on streets and avenues;
An excess of truck traffic on avenues and streets; and
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Trucks using residential streets to avoid delays on congested streets or at traffic lights.
To maximize the efficiency of the existing goods movement network, the recommendation is to clearly define future land uses adjacent to transportation corridors and regulate on- and off-street loading based on the specific land use.
Future Transportation Demand, Supply and Performance
Several previous sub-area studies have identified committed and planned road network improvements for Hamilton:
Red Hill Valley Parkway.
Arvin Avenue extension.
Dartnall Road extension to Dickenson Road.
Garth Street extension from Twenty Road to Dickenson Road.
New east-west road from Tradewind to Trinity Road.
Trinity Church Corridor (being examined as part of ROPA 9)
Upper Ottawa St. extension
Waterdown network improvements.
Highway 6 widening to five lanes (3 northbound and 2 southbound) south of Dundas Street, and the construction of an interchange at Highway 6 and Dundas Street (EA was recently completed).
Even with these road improvements, projections indicate that there will be road capacity shortfalls in the future. Assuming that current auto mode share trends remain the same in the future, most Escarpment crossings will be well over capacity in 2031. However, a 20% reduction in auto driver trips (through transit improvements and TDM), will allow most Escarpment crossings to operate within their capacity in the future. Cost estimates indicate that a new Escarpment crossing would cost in the order of $50 million, which indicate the importance of auto reducing strategies.
Road Network: Development of a Preferred strategy
Assuming that all committed roadway improvements are implemented and aggressive TDM in place, it is projected that some capacity deficiencies in Hamilton‟s roadway network will still exist:
Downtown and Central Escarpment Crossings: Future projects indicate that many of the Escarpment crossings are projected to continue to experience some congestion. In the short term, some of this congestion will be alleviated with the opening of the Red Hill Valley Parkway. Proposals to expand the Downtown road network are inconsistent with the goals of promoting a pedestrian and transit supportive environment. Other approaches are proposed: Accept some congestion as part of a successful Downtown Implement aggressive Transportation Demand Management (i.e. parking pricing)
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Additional transit improvements Postpone proposed conversion of east-west streets to two-way
Red Hill Valley Corridor: Over the long term, longer distance travel could cause capacity limitations on the Red Hill Valley Parkway. This could be alleviated by implementing additional TDM measures and/or auto disincentives such as road pricing. By 2031, additional lanes may be required on Red Hill Valley Parkway if development in Hamilton intensifies and TDM/transit initiatives are not effective.
Highway 403 Corridor: Due to the growth in surrounding municipalities, the Highway 403 corridor experiences regular congestion, this is projected to increase due to growth in surrounding municipalities. Environmental concerns to the Escarpment limits major road expansion leading to other capacity strategies such as the implementation of HOV lanes. The proposed GTA-Niagara corridor (currently under assessment) may also help to reduce travel demand on Highway 403 between the Lincoln Alexander Parkway and Highway 6 North.
New Link to Airport: A significant issue has been the lack of an appropriate north and east goods movement access to the Hamilton International Airport. The Hamilton Goods Movement Study (2005) identifies a need to provide a designated truck route between the Red Hill Valley Parkway and the Airport. In the short-term, existing roads could serve this function while specific routing alternatives are studied.
Proposed infrastructure improvements contained in Hamilton Transportation Master Plan will improve the efficiency of the City‟s good movement network. 2.9 Hamilton Transportation Master Plan, Volume 3: Public and Agency Consultation Report (2007)
This document contained no information of substantial relevance to the truck route master plan study. 2.10 City of Hamilton Economic Development Review (2007)
Hamilton 2008 – The Year Ahead
The Conference Board of Canada estimates that Hamilton‟s manufacturing economy will begin a slow recovery in 2008. Growth will remain relatively flat. There is new growth already in the development pipeline and over 700,000 square feet of industrial space currently under construction.
Employment Lands in Progress
Over the past two years, the City of Hamilton‟s Industrial Parks and Airport Development Division has been carrying out many required studies to open up industrially designated lands for development including:
Airport Employment Growth District Study
Ancaster Industrial Business Park
North Glanbrook Industrial Business Park
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Stoney Creek Industrial Business Park
The development of new industrial business parks in the City of Hamilton will add more commercial vehicles to existing truck routes, highways and local streets in the City of Hamilton. 2.11 Metrolinx Green Paper #5: Moving Goods and Delivering Services: Development of a Regional Transportation Plan for the Greater Toronto and Hamilton Area (2008)
An efficient goods movement system is critical to sustaining economic prosperity in the GTHA. However, the movement of goods and delivery of services also requires the management of environmental concerns (e.g., emissions, noise, and excessive land consumption), transportation safety concerns (e.g., collisions, spills, and pavement damage) and increased road congestion. The goals set forth in this paper will attempt to balance these costs and benefits using sustainable approaches.
Appendix A: Potential Initiatives
Land Use LU2 – Develop and apply similar proximity guidelines for major truck routes
LU4 – Use land-use policies and public funds to develop the strategic assembly of lands near key goods movement hubs
LU7 – Establish freight villages adjacent to intermodal hubs so that transport-intensive industries can choose the most efficient mode by time and cost
Infrastructure I1 – Implement Private-Public partnerships to invest in additional rail and road capacity for trunk routes and regional arterial connectors
I3 – Expand road tolls to key facilities and provide reduced rates for trucks in off-peak hours
I4 – Develop an east-west toll truck route through the GTHA; through-trucks are required to use this route
Operations O5 – Develop a system to coordinate truck deliveries; one possibility is to have truck trips pre-registered and assigned a timeslot within which they can arrive, optimizing timeslots to minimize bottlenecks and congestion
Use of Technology
T2 – Implement programs to collect data on truck movements using GPS
T5 – Use real-time public systems to consolidate local movements and optimize total system logistics costs
T6 – Implement a suite of technologies to monitor traffic, enable tolling and allow dynamic route/mode selection for shippers and drivers
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Regulations and Policies RP1 – Develop and use common criteria and approaches for designating truck routes by municipalities and regional agencies to create an integrated GTHA-wide truck route network
The implementation of potential initiatives from Metrolinx Green Paper #5 will have a major impact on truck routes in the City of Hamilton. Land use polices will effectively guide development of industrial developments near good movement hubs and could lead to the development of freight villages. Road tolls, particularly congestion-based tolls, will impact time of day in which trucks use roads and highways. Policies to develop an integrated GTHA-wide truck route network will create stronger commercial linkages to and from Hamilton. 2.12 Road Classification and Right-of Way Width Project (2009)
The study provides an outline of the recommended road classifications and right-of-way widths for the City of Hamilton‟s roadway network. This study is of particular importance to the Truck Route Master Plan Study, as designation as an arterial roadway (Major/Minor Urban or Rural) or freeway implies that truck travel on the roadway is appropriate.
Recommended Truck Route Policy:
It would be appropriate that truck route designations continue to be provided through the applicable by-law. It is noted that trucks may affect the capacity of road or the need for additional lanes (e.g. truck climbing lanes). Also, the truck route system may have a higher impact on turning radii at intersections and the need for larger daylight triangles will be more critical.
Major Arterial Roads (Urban), subject to the following policies:
The primary function of a Major Arterial Road is to carry relatively high volumes of intra- municipal and inter-regional traffic through the City in association with other types of roads, although land accesses are permitted, they are under rigid controls;
The maximum basic right of way widths for Major Arterial Roads shall be 45 metres;
The right of way widths of Major Arterial Roads shall include sufficient width for left turn lanes and right turn lanes at major intersections;
Major Arterial roads should generally be organized in a grid pattern with collectors, arterials, parkways and provincial highways;
All vehicle types, including trucks (subject to truck route network), buses, and rapid transit vehicles are permitted; bike lanes may be in place to accommodate cyclists and sidewalks shall generally be present on both sides of the street for pedestrians; and
Parking shall be prohibited or at minimum be restricted in the peak hours.
Minor Arterial Roads (Urban), subject to the following policies:
The main function of a Minor Arterial Road is to carry moderate volumes of intra municipal and inter-regional traffic through the City in association with other types of roads, but land accesses are permitted under some controls;
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The maximum basic right of way widths for Minor Arterial Roads shall 36 metres;
Minor Arterial roads shall generally be organized in a grid pattern with collectors, arterials parkways and provincial highways;
All vehicle types, including trucks (subject to truck route network), buses and rapid transit vehicles, are permitted; bike lanes may be in place to accommodate cyclists and sidewalks shall generally be present on both sides of the street for pedestrians; and
Gateway features may be permitted where required.
Arterial Road (Rural), subject to the following policies:
The primary function of a Rural Arterial Road is to carry relatively high volumes of intra municipal and inter-regional traffic through the rural area in association with other types of roads; land accesses are permitted but should be considered a secondary consideration;
The maximum basic right of way width for Rural Arterial Roads shall be 45 metres;
Rural Arterial roads shall generally be organized in a grid pattern;
All vehicle types, including trucks (subject to truck route network) and buses shall generally be permitted; paved shoulders may be present for cyclists, and
Parking shall be prohibited. 3. STRATEGIC VISION
The Strategic Vision attempts to explain the purpose of a truck route system in general, and discusses the advantages of defining a truck route system. The Vision reflects the directions of Hamilton‟s Economic Development Strategy, which places a high priority on fostering transportation-related industries such as the Port and Airport. The Vision also addresses the need to balance economic objectives with social and environmental considerations, including the creation of “liveable” communities. There are a number of key documents that have had a bearing on the overall vision including the Goods Movement Policy Paper (2005), the Hamilton Goods Movement Study (2005), as well as Vision 2020, GRIDS, and the most recent Economic Development Strategy. 3.1 Introduction
North American truck route plans are designed on the principle that heavy vehicles should stay on designated routes (primarily arterial roadways) and only use local roads (collector and residential) for local trips. This has lead many municipalities and regions to design a system of bypass routes for traffic that has neither an origin nor a destination in the community, and a local system that guides heavier traffic through the main local routes.
Ontario municipalities are permitted, by provincial legislation, to use vehicle weights when determining heavy vehicle routes. Given that gross vehicle weight (GVW)1 is based on physical characteristics, this translates in to size. The advantage is it puts everyone on a level playing field when it comes to measuring loads. Interestingly, it is not always the weight of the vehicle at the time
1 Gross vehicle weight is the combined weight of the vehicle and the cargo. Transport Canada sets the standard for determining GVW.
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of the trip, but the maximum load potential that matters for enforcement purposes. A vehicle could be well under its maximum weight but could still be in violation based on its GVW.
It is important to note that due to Canada‟s climate, weight restrictions can change throughout the year. In the spring when roads are thawing out, restrictions are often in place indicating that trucks can only haul a certain percentage of their gross weight. Some jurisdictions also extend these restrictions into the winter when slippery conditions can make fully loaded trucks more dangerous.
The province of Ontario also regulates vehicles for their overall dimensions. This would apply to large construction project equipment or entire buildings that are sometimes moved on flatbeds. Municipalities in the province tend to defer to provincial regulations when determining the size regulations for over dimension loads. Most of loads can be transported under special permitting regulations.
Besides weight and dimension regulations, another broad regulatory restriction is for dangerous goods. These routes apply to the cargo and not the size of vehicle so a different set of criteria apply. These loads are not considered in this report.
There are two broad questions that municipal regulators must consider when designing truck routes. First, what are the routes? This can be answered after careful consideration of technical, economic, social and environmental implications.
The second question is how will the information be communicated? This does not refer to map and brochure design, but rather to the system of signage that will guide truckers on their trips through the community. The signage can be described as either “permissive” or “restrictive.” The following sections describe these signing approaches and present the strengths and challenges of each one.
3.1.1 PERMISSIVE APPROACH
The City of Hamilton currently uses a permissive approach to signing its heavy vehicle routes. Following the guiding principle that trucks should stay on designated routes unless they are making a local trip, the municipality indicates the approved truck routes with a green circle around the silhouette of a truck. Trucks meeting the weight restrictions are free to use these routes at any time of the day or night, unless otherwise indicated. When using roads not included in these routes, it must be for taking the shortest path between the nearest truck route and the trip origin/destination.
One of the distinct advantages of the permissive approach is its simplified signage routine. Rather than having to watch for exceptions at every corner, truckers follow the green circles until they are close to their destination, and then they can legally turn onto local streets that constitute the shortest path from the truck route.
This, in turn, can make enforcement easier because police officers only have to stop vehicles that they perceive not to be taking the shortest path (proof of the shortest path can be taken from shipping documents showing the origin and destination).
The permissive approach is also cost effective and prevents the proliferation of restrictive signage on roadways which are not truck routes.2The permissive approach often requires fewer signs than the restrictive approach, particularly in dense urban areas.
The challenge of this approach is that it lacks the finesse that is sometimes required to deal with local issues (e.g., persistent violations, public perception, and roads that are not suitable for trucks).
2 New York City Truck Route Management and Community Impact Reduction Study: Technical Memorandum 3, Truck Signage Program. March 2007.
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3.1.2 RESTRICTIVE APPROACH
The restrictive approach to truck route signage still operates on the same broad principle as the permissive; that being, stay on the designated routes until it is necessary to use a local road, but there are more restrictions on the local roads and each is communicated to truckers with street signs. This approach reflects a stronger connection between land use and travel patterns as the restrictions can be used to keep heavy vehicles away from residential or commercial areas, where noise could be a significant factor.
The advantage of this approach is it does allow for fine tuning of restricting heavy vehicle access. These exceptions can be in response to citizens concerns about noise and safety, but can also be put in place to address traffic flow issues or geometric deficiencies in the road network.
An example of how other types of restrictions are used to manage traffic, which often applies to personal and heavy vehicles, is time-of-day turning restrictions at intersections. Restrictive signage is also used to direct traffic away from some commercial areas, which may provide a direct route, but where the municipality is trying to promote or protect a pedestrian environment.
One significant disadvantage of the restrictive signing approach is that it typically requires more time and funds to maintain, due to the inevitable proliferation of signage. Restrictive signage is often perceived, by the public, to be more proactive and more helpful, which can lead to near-constant requests for more signage.
However, given that restrictive signage is almost always posted on the receiving legs of intersections, it can result in situations where drivers have already made their turns before they realize they are not permitted on the receiving leg. This can, subsequently, lead to large trucks trying to back up though intersections, which is fundamentally unsafe. 3.2 Truck Route Master Plan Goals
The overarching goal of any truck route plan should be to support safe and timely movement of goods and services, while recognizing and trying to limit the impacts of truck traffic on the interests of the greater community (e.g., safety, congestion, noise, and air quality).
Well designed and efficient truck routes are an essential component of municipal transportation plans. They may very in their complexity and detail depending on the local traffic demands, but the routes should serve to ensure the smooth flow of traffic through and within the community by connecting industrial and commercial areas, and providing reasonable, controlled access to residential areas.
The City of Hamilton envisions itself as an intermodal transportation hub bringing together first class air, rail, marine, and road networks. The Truck Route Master Plan is an important step along the path to achieving that vision. 3.3 Truck Route Master Plan Benefits
A well designed truck route system presents multiple benefits for residents, industry and local government. This section presents, in general terms, the economic, infrastructure, fiscal, environmental and social benefits that the plan can offer. Later in development of the Truck Route Master Plan a more quantitative assessment will be presented for some specific locations.
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3.3.1 ECONOMIC
In defining its economic vision for the future, the City has adopted a three-pronged approach focused on traditional industries, emerging opportunities and non-traditional clusters. The breakdown of specific industries in these clusters is shown below (Exhibit 3-1).
Exhibit 3-1: Industry Clusters
Traditional Clusters Emerging Clusters Non-traditional Clusters Advanced Manufacturing Aerotropolis Regional Tourism Agriculture/Food & Beverage Biotechnical & Biomedical Historic Downtowns Processing Film and Cultural Industries Port Related Industry/Businesses
All of the clusters can benefit, to varying degrees, from a well designed truck route network. The Traditional Clusters would likely be more reliant on heavy truck traffic, where Emerging and Non- traditional Clusters may have a higher degree of mixed commercial traffic including some heavy trucks. In either case, whether it is imports, exports or a mix of both, all the Clusters require well defined routes based on clear regulation and enforcement. Their needs must also not be treated as the exception on every road. Heavy truck and commercial traffic needs to have equality if not primacy on some routes.
The City of Hamilton‟s cluster approach to economic development can be well supported by a truck route master plan. A clear delineation between land uses can increase the understanding of the traffic patterns and thus support the timely transportation of goods. This in turn reduces businesses costs and opens economic opportunities from which the entire community can benefit.
3.3.2 INFRASTRUCTURE
Not all roads and networks are designed for all types of vehicles. Heavy vehicles can have an immense impact of the life and durability of roads and related infrastructure. A truck route system which is designed to keep heavier vehicles on purpose designed roads will support a longer life with lower maintenance costs for the system.
3.3.3 FISCAL
Infrastructure investments are a significant expense for municipal budgets. However, well designed systems can have significant paybacks in the form of increased commercial development and tax revenue. They can also have reduced maintenance costs.
3.3.4 ENVIRONMENTAL
Roadway congestion and the associated noise and emissions have become a major concern for many communities. While advances are being made in engine design to lower these impacts, travel patterns with repeated stopping and starting can have a significant impact.
3.3.5 SOCIAL
Municipal governments often face complaints from residents who want trucks removed from residential and certain commercial areas. While some trips are necessary – a large truck is
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generally the only option when moving to a new house – there is rightfully less tolerance for trucks which are just passing through the neighbourhood.
A truck route network which keeps large vehicles on arterial roads, with exceptions for essential trips onto collector and local roads can reduce noise and emissions in residential neighbourhoods and increase community safety. 3.4 Truck Route Master Plan Key Elements
As previously stated, Hamilton‟s current truck route plan is based on a system of permissive signage. While this has worked, increasing heavy traffic volumes are one indication that a more comprehensive truck route master plan is necessary. This section does not aim to present the details of the plan, but rather outline four key components. They are:
Clear purpose;
Hierarchy of transportation routes;
Regulatory Coordination; and
Education and enforcement.
3.4.1 CLEAR PURPOSE
The City of Hamilton‟s Truck Route Master Plan must begin with a clear purpose. As indicated in the Request for Proposals for this study, roadway safety is to have a primary place in the vision. Additional elements that could be included are:
Maintain access for truck deliveries;
Reduce congestion on key transportation routes;
Reduce congestion in the Central Business District (CBD);
Reduce noise in residential neighbourhoods;
Reduce levels of air pollution attributed to heavy vehicle traffic; and
Support pedestrian and bicycle access to commercial areas.
3.4.2 HIERARCHY OF TRANSPO RTATION ROUTES
The second element of Hamilton‟s Truck Route Master Plan lies in developing a hierarchy of transportation routes. Hamilton has been clear about its desire to become an intermodal hub, and for this reason, routes must consider road-road connections, as well as intermodal links.
Commercial traffic has traditionally been a secondary consideration, when it is considered at all, in municipal transportation plans. The focus is usually on passenger traffic, and trucks are considered a nuisance on most roads. In the end, while some users would prefer to have dedicated roads for different types of traffic the best approach is a hierarchy which gives precedence but not exclusive use for any type of traffic on any road.
The recent trend in many Canadian cities has been to aggressively develop ring-road or bypass strategies for truck traffic. This approach aims to keep heavier traffic to larger arterial roads when
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possible, and reserve narrower collector and local roads for passenger traffic. Of course, passenger traffic has to use the arterial roads and trucks must make local deliveries, but by creating a clear and enforceable hierarchy, larger vehicles are required to stay on arterials when possible, and are accepted on collectors and local roads when necessary.
Saskatoon has an interesting approach to vehicle hierarchy that is worth mentioning. Within their road system they have created primary and secondary routes. All trucks are permitted to use the primary roads, with secondary roads restricted to vehicles classed as level 2 (weighing less than 46,500kg) or level 1(weighing less than 33, 500 kg).3 Level 2 vehicles are not permitted in the downtown core (central business district) between 0700 h and 1800 h without a permit (level 1 are). This promotes smaller trucks in the core, but still allows for larger vehicles carrying loads that cannot be put in a smaller truck. These restrictions are in place because the larger vehicles block sight lines to traffic controls, have difficulty negotiating turning radii, require longer stopping distances and have slower accelerations. Safety of roadway users and pedestrians is paramount in the Saskatoon CBD.4
3.4.3 REGULATORY COORDINATION
Roads do not stop at municipal boundaries - they continue on and connect communities and industries. However, sometimes provincial and municipal regulations act as though there is a solid wall between the communities. This can lead to a confusing network where a vehicle is permitted to travel on one road through a community but when the jurisdiction changes, so do the vehicle requirements. This can lead to inefficient re-routing and applications for multiple permits to address load size restrictions.
Hamilton has chosen to pursue economic development with a cluster strategy. This will entail some specific land use and zoning controls. However, it is important that the zoning and bylaws take into account the transportation routes that will be necessary to support these clusters. For example, should the City choose to restrict the size of trucks in the CBD, this could require load shifting at terminals. Terminals which are located in an industrial zone today should not be faced with encroaching residential development in the near future. The City of Calgary is considering one option where businesses operating with a large number of heavy vehicles will only be able to locate within a specified distance of a major arterial roadway.
Another zoning challenge to consider is neighbourhoods or streets where the pedestrian environment is paramount. Just as freeways are not for walking, small shopping streets should not be main truck routes. But it is important to remember that stores still need to receive their stock. This does not mean that trucks have to be permitted on all roads all the time, but zoning and loading zone regulations need to consider reasonable access for commercial vehicles.
Next, within the hierarchy and regulatory environment there needs to be a clear system of exceptions. Some exceptions are based on time of day - trucks are not permitted on certain roads during specific hours - and some are based on load size. In some cases exemptions are granted for oversized (either in weight or dimension) loads to travel on local roads for specific reasons. Some municipalities require proof that a load cannot be broken down and transported on smaller vehicles before approving an exemption for a larger vehicle to entre specific zones. Whatever the framework for exemptions, it needs to include a clear and timely approvals process. Although many oversized or exceptional loads can be planned for, there will be true exceptions that require quick approval. Therefore, there needs to be a reasonable degree of flexibility in the exceptions process.
3 46,500 kg translates into a 6-axel, single box semi-trailer, or a vehicle with 5 axels or less. 4 Truck Bylaw Modification. Report to Saskatoon City Council. File 6000-1. September 2005.
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3.4.4 EDUCATION AND ENFORC EMENT
One of the great frustrations for drivers making commercial deliveries is dealing with poorly signed routes and unclear transportation regulations. Attention must be given to working with key stakeholders – residents, local businesses and delivery companies - to communicate the new routes and regulations. When considering whether to maintain a permissive approach to signage, or adopt a more restrictive approach, Hamilton may want to consider their plans for stakeholder education.
Coupled with education is a plan for enforcement. Municipalities usually introduce new heavy vehicle regulations with an education period of about 3 months. This offers users time to adjust their transportation patterns over a reasonable period of time. It also gives the municipality an opportunity to see if signage has been placed in the appropriate locations. 4. EVALUATION METHODOLOGY
The general evaluation methodology used to establish the recommended truck route network founded on two basic principles: 1) the designation of roads as truck routes should not contradict their road classification; and 2) roads designated as truck routes should facilitate goods movement, while balancing the impacts of truck traffic with the greater interests of the community.
In keeping consistent with both of the principles noted above, Local roads and Collector roads outside of recognized industrial/commercial employment areas should not, and will not under this evaluation methodology, be considered for inclusion in the truck route network. Arterial roads, however, generally satisfy a number of criteria, which makes them suitable for designation as truck routes.
The Road Classification Policy Paper (2005) adopted by Council as one of the founding elements of the Transportation Master Plan, and the Final Report of the Road Classification and Right-of-Way Width Project (2009), establish that arterial roads (both urban and rural) within the City of Hamilton should accommodate trucks. The Road Classification Policy Paper also sets out that collector and local industrial/commercial road sections shall provide for all vehicle types. In short, all Provincial freeways and highways, rural arterial roads, and urban major arterial roads are assumed to be truck routes available 24 hours a day, seven days a week, unless signed otherwise.
Goods movement to, from, and within the City of Hamilton must be supported to sustain the economic vitality of the city. As such, goods movement should not be considered as a sub-category of travel demand, such as motorists, transit riders, pedestrians and cyclists, as they all relate to person travel rather than the transport of manufactured goods and commodities. Rather, goods movement (rail, marine, air, road) and the systems to support it should be considered independent, but coincident with the road network for truck-related trips. Therefore, the need for suitable truck routes cannot be prioritized in competition with the needs of other road users, rather, it must be considered independently. 4.1 Other Key Considerations
In addition to the two basic principles noted above, the following key considerations also factored into the truck route network evaluation methodology.
4.1.1 DENSITY OF GRID
One of the first questions raised in developing a truck route network is the appropriate density of the grid. The system must be dense enough to be readily understandable to truck operators, to the
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police, and to the public. As a starting point, a truck route system that is generally coincident with the arterial road system is preferred, and this philosophy is reflected in policies adopted by many municipalities.
A general reduction in density would lead to less clarity for users and for the Police Service responsible for enforcement. In the absence of a designated truck route, trucks are legally permitted to travel on all roads that constitute the most direct route between their origin/destination and the nearest truck route. This often results in the decision on the most direct route being subject to interpretation.
Conversely, an increase in truck route density beyond the arterial network would require that collector and local roads be designated as truck routes. Given the characteristics of these classifications of roads, this could create an imbalance in the impacts of truck traffic and the interests of the community, with respect to safety, congestion, noise, and air quality.
4.1.2 GEOGRAPHIC AND HI STORIC FEATURES
Hamilton has several unique historic and geographic features that influence the structure of a truck route system. They include natural physical barriers such as Lake Ontario, Hamilton Harbour, and the Niagara Escarpment, and constructed barriers such as freeways, expressways, and rail lines. Historic features include legacy road allowances, abutting mixed use development with minimal setbacks, and some indirect connections to adjoining municipalities.
4.1.3 RESTRICTIONS BASED ON ROAD OR VEHICLE CHARACTERISTICS
There are a number of rural arterial roads with load restrictions in the spring. The first step is to determine whether the roads should be included in the truck network. The second step is to determine whether there should be spring load restrictions, or the road should be upgraded.
The designation of a network of roads as a truck route does not implicitly imply that every link in the route is able to accommodate all types of trucks. In some instances links in the truck route network will have geometric characteristic (e.g., lower clearances, tighter turning radii, etc.) that will preclude them for use by some trucks. Additionally, some types of trucks (e.g., Long Combination Vehicles, oversized loads, etc.) will require additional clearances, beyond adhering to the truck route, to travel within the City of Hamilton. More information on the applicable restrictions and policies is provided in Section 7 of this report.
Ultimately, it is the responsibility of the truck operators to ensure that the routes that they choose to drive are compatible with their vehicles and their driving abilities.
4.1.4 RESTRICTIONS BY TIME OF DAY
At present, there are a number of truck routes in Hamilton that are restricted by time period (e.g., 7:00 a.m. to 7:00 p.m. only). This can be potentially used as a mitigating measure, by restricting truck traffic to daytime hours. However, such time restrictions may not be regularly enforceable because of the staffing levels and priorities of the Police Service between 7:00 p.m. and 7:00 a.m. Furthermore, the effective application of time-of-day restrictions requires clear, consistent guidelines for their use. Time-of-day restrictions are considered as part of this evaluation methodology. A recommended policy regarding the use of time-of-day restriction is discussed in Section 7.1.1 of this report.
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4.2 Analysis Approach
The general evaluation methodology used to establish the recommended truck route network involves three levels of analysis, which address the basic principles and key considerations described above. The three levels of analysis are described in detail below.
4.2.1 LEVEL 1 ANALYSIS
From first principles, a truck route network was prepared, which includes all links in accordance with the following criteria:
Part A – the link is a freeway or highway, a rural arterial road, or a major urban arterial road as described in the Road Classification and Right-of-Way Width Project report (June 2009) shown in Exhibit 4-1 and Exhibit 4-2.
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Exhibit 4-1: Roadway Classification
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Exhibit 4-2: Roadway Classifications – Urban Area Enlargement
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Part B – the link is a minor urban arterial road as described in the Road Classification and Right-of-Way Width Project report (2009) shown in Exhibit 4-1 and Exhibit 4-2, and one of the following:
A direct link to the Provincial freeway system;
A link crossing a significant natural barrier (e.g. escarpment);
A direct link to a signed permissive truck route in an adjoining municipality;
A link to or within an industrial/commercial employment area as defined in the Draft Urban Structure Report (April 2008) shown in Exhibit 4-3, including several small defined employment areas (McMaster Innovation Park, west Hamilton, Dundas) plus the City Business Parks shown in Exhibit 4-4;
A link to or between the Downtown, Sub-Regional Centres, and Community Centres as defined in the Draft Urban Structure Report (April 2008) shown in Exhibit 4-3;
A direct link to a major institutional generator (hospital, college, university);
A direct link to Hamilton International Airport, a rail hub, or port facilities under the control of the Hamilton Port Authority; or
A direct link to mineral aggregate resource areas as defined in the Hamilton Official Plan rural land use designations shown in Exhibit 4-5, or to a landfill.
Exhibit 4-3: Draft Urban Structure
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Exhibit 4-4: City of Hamilton Business Parks
Exhibit 4-5: Rural Land Use Designations
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Part C – the link is an urban collector road as described in the Road Classification and Right-of-Way Width Project (IBI Group, June 2009) shown in Exhibit 4-1 and Exhibit 4-2 that is an extension of an urban major or minor arterial road that meets the Part A or Part B criteria, and it is fully located within a recognized industrial/commercial employment area as defined in the Draft Urban Structure Report (April 2008) shown in Exhibit 4-3, including several small defined employment areas (McMaster Innovation Park, west Hamilton, Dundas) plus the City Business Parks shown in Exhibit 4-4.
The result was the L1 truck route network. The results of the Level 1 Analysis are presented in Section 6.4.1.
4.2.2 LEVEL 2 ANALYSIS
The existing truck route system was developed and intermittently maintained over time in accordance with documented and undocumented criteria. It is not current in some respects because of land and transportation infrastructure development that has occurred since the truck route network was last updated in a comprehensive way. However, the existing truck route network is a very good template for review, because of its historical development. The Level 2 Analysis was performed in several phases.
The present truck route network was compared against the L1 truck route network developed in the Level 1 Analysis, and all variances were identified. Variances include links in one network but not in the other (i.e., links in the existing truck route network but no in the L1 network and vice versa). The identified variances were re-evaluated with respect to the L1 criteria. Based on the review, variances were either included in or rejected from the base truck route network.
The result of the Level 2 Analysis was the L2 truck route network. The Level 2 Analysis is presented in Section 6.4.2.
4.2.3 LEVEL 3 ANALYSIS
Road sections or gaps that have been identified as issues by City staff, the public, and other stakeholders, as listed on the consolidated Issues List, and any road sections or gaps that have been identified as issues by the Project Team, were reviewed. Any issues that were addressed in the Level 1 and Level 2 analysis were noted and set aside. Remaining issues were carried forward for further analysis.
Planned changes to the road network were also reviewed. Proposed road links slated for construction or identified in the Transportation Master Plan or in Class EA Studies (e.g., Dartnall/Trinity Church Extension), to be completed within five (5) years were identified. This information was carried forward for further analysis.
The City of Hamilton covers a large geographic area. An initial scan by the consultant team resulted in the definition of eight distinct geographic regions, within which the issues, opportunities, and concerns are either similar or are inter-connected. Therefore, the Level 3 Analysis was undertaken on this regional basis (the geographic regions and the Level 3 Analysis are presented in Sections 6.1 and 6.4.3, respectively).
The remaining issues were evaluated with the intent of determining a proposed action: “Do nothing”, “Add to system”, “Delete from system”, or “Implement mitigating measures”. The evaluation was undertaken as a qualitative and quantitative assessment of road sections carried forward, in each of the eight regions, having regard to the following criteria:
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Maintain truck route system connectivity (i.e., avoid dead-ends in the truck route network);
Maximize the efficiency of the system serving commerce and the economy;
Minimize the impact of goods movement on residential communities, schools, hospitals - sensitivity of abutting land uses to noise and air quality (dust, particulates from diesel), predominant abutting land use, road allowance width and setbacks;
Minimize the impact of goods movement on safety, comfort and service offered by passenger transport modes - suitable geometry for turning characteristics, sufficient lane widths, degree of separation from pedestrians and cyclists, signal progression suitability for slow-moving trucks;
Consideration of restrictive measures where the economic, social, and/or environmental capacity of the road section would be adversely affected, and where alternate routes are reasonably available;
Consideration of the specific challenges in the Downtown Core (a detailed discussion of the truck route network for the Hamilton Downtown Core is provided in Section 4.3); and
Consideration of reasonable density within industrial/commercial areas to enhance routing efficiency while minimizing permissive signing requirements.
If it is determined that a road section should be added to the L2 truck route network, subject to mitigation, then conditions for inclusion (e.g. safety improvements, widening, alternatives, etc.) must be available within a specified time, or the addition of time restrictions or weight restrictions, could be generated for any road link proposed to be added to the L2 truck route network. Further discussion of capital roadway improvements is provided in Section 9.2.
The result of the Level 3 Analysis was the Alternative 3 - Recommended Truck Route Network (L3 truck route network). Exhibit 4-6 is a flow diagram illustrating the analysis approach.
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Exhibit 4-6: Analysis Approach Flow Diagram
Level 1 Level 2 Level 3
Prepare Truck Route System from First Review Issues Raised by Project Principles Based on Road Classification Compare Existing Truck Route Team and Stakeholders (Arterial) and Level 1 Criteria System to L1 Network, and Identify All Variances Link: To Provincial Highway Across Significant Natural Barrier Identify Planned Changes to To Designated Truck Route in Road Network Adjacent Municipality (within 5 years) To Employment Area To Downtown, Sub-Regional Centre, Review All Variances Against Community Centre Level 1 Criteria To Hospital, University, College Evaluate Each Issue To Airport, Rail, Hubs, Port Level 3 Criteria – Safety, Quality To Mineral Aggregate Resource of Life, System Connectivity, Area, Landfill Efficiency Determine if “Do Nothing”, “Add”, Based on Review, Include or “Delete” or “Mitigating Measures” Reject Variances to Determine are Appropriate the Base Truck Route System
Level 3 Network (L3) Recommended Truck Route Level 1 Network (L1) Level 2 Network (L2) Network
4.3 Hamilton Downtown Evaluation
With any large city, the downtown core (central business district) presents some rather specific challenges when it comes to truck routing. Characterized by a dense road network, serving a diversity of land uses, the challenges in the Hamilton Downtown Core reflect those of the entire city in a concentrated geographic area.
The downtown truck route has to balance the needs of business with those of the greater community, in an area that is densely developed, and where several modes compete for space on roads with little or no room for expansion. As a result of these particular constraints, the systemic approach to truck route network evaluation that was described in Sections 4.2.1 through 4.2.3 (above) cannot be applied as pragmatically to the Downtown Core.
The following sections provide a background discussion of truck routing challenges in the Hamilton Downtown Core, and describe alternatives that were considered for addressing those challenges.
4.3.1 DOWNTOWN BACKGROUND DISCUSSION
The sub-sections below provide background information on topics related to truck routing in and around the Hamilton Downtown Core (e.g., current truck patterns, the Hamilton perimeter road concept, and connections to Highway 403), and other ongoing concerns (e.g., transit expansion) that could impact those truck movements.
4.3.1.1 Current Truck Patterns As part of the needs assessment for the Hamilton Perimeter Road (2003), a truck trip table was prepared that was based in part on count information, and in part on a “truck following” study that
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determined destination routes of a large sample of trucks entering the Downtown Core. The truck trip table indicated that of trucks entering the core (bounded by Victoria, the Escarpment, Dundurn, the Harbour), 50% were from the east. Of those trucks entering from the east, approximately 37% were destined to locations within the Downtown Core, 9% were destined to Hwy 403 eastbound, 12% were destined to Hwy 6 North, and 16% were destined to Hwy 403 westbound. Therefore, 28% of the trucks entering the Downtown Core from the east were destined to Hwy 403 WB and Hwy 6 NB; routes that would require the greatest amount of out of the way travel if Burlington Street plus either the QEW/Hwy 403 or RHVP/Hwy 403 were used instead. The Claremont Access/Upper James/LINC alternative is an available alternate route for trucks destined to Hwy 403 WB; however, much of Upper James Street is characterized by direct-frontage commercial development with numerous driveways and no centre turn lane between the escarpment and Fennell Avenue, and the LINC is nearing capacity in the peak hours.
Count information from June 2008 was used to assemble information on truck flows in the Lower City between Hwy 403 and east of Queen Street, in order to gain an understanding of link and turn volumes. The results are illustrated below (Exhibit 4-7).
Exhibit 4-7: Downtown Truck Patterns
2008 7-hr Truck Volumes York Blvd
260 250 N 20 PLUS 20 100 80 buses each direction 340 30 220 30
* Not to Scale 40 330 210 * Minor volumes not 440 Cannon necessarily shown 190 PLUS 20 ~20 buses * Counts: 7 - 10 a.m. 60 220 each direction on plus 2 - 6 p.m. 10 140 York north-south roads 170 / Wilson * 24 hr Count: Multiply by 1.635 130 20 120
560 30 340 310 190
King King
130 10 PLUS 100 90 260 buses on King and 180 20 260 buses on Main
Main Main
520 90 450 450 440 30 10
Dundurn Locke Queen
The count information is reasonably consistent with the 2003 trip tables prepared for the Hamilton Perimeter Road Needs Assessment (see Section 4.3.1.2). The pattern evident from the volume graphic is that trucks entering from the west generally stay on Main Street, and trucks exiting to the west generally go to King Street at Hwy 403 from Cannon Street using several alternate routes. Trucks entering the Downtown Core from the east are predominantly on Cannon Street.
Based on multi-day classification counts performed in summer 2008 on York Boulevard west of Dundurn Street, 24-hr counts would be approximately 1.6 times the 7-hr count totals. Expressed another way, the 7-hr volumes represent approximately 60% of the 24-hr volumes. Counts undertaken on King Street west of Dundurn and on Main Street west of Wellington Street indicate
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that the 7-hour volumes in those locations represent 45-50% of the 24-hr volumes, with a greater proportion occurring in the midday period than on York Boulevard.
Clearly, there is a current demand for trucks to use the present truck route system in/through the Downtown Core – approximately 1000 per day to/from the east and 1300 to/from the west. However, some of those truck trips have reasonable alternate routes available.
4.3.1.2 Hamilton Perimeter Road Concept
The original Hamilton Perimeter Road (HPR) concept (Exhibit 4-8) was proposed because of the disconnect between Burlington Street and Hwy 403, which results in truck traffic using east-west streets Main, King, York/Wilson, Cannon, and Barton, and north-south streets Dundurn, Locke, Queen, and Bay. Although a great idea as a high level concept, there were very significant drawbacks, especially when investigated in some detail.
Exhibit 4-8: Perimeter Road Concept
Source: Hamilton Perimeter Roads Needs Assessment 2003 Assuming that the HRP could have been advanced westerly to the York Boulevard/Hwy 403 area, connecting to Hwy 403 would be problematic for several reasons: all moves are provided at Main and King, but York Boulevard is connected only to/from the east, so the HPR connection to York Boulevard would not provide any better functionality; and, interchange spacing is very tight so introducing another interchange for the HPR or additional ramps at York Boulevard to/from the west is operationally very challenging and may not receive MTO support. As capacity constraints on Hamilton streets are greatest in the area of the Dundurn Street screenline, adding HPR capacity
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to/from the east without addressing improved capacity/connections to Hwy 403 serves no useful purpose.
Apart from the Hwy 403 connection issue, some of the challenges in developing the HPR included:
Difficulty providing suitable connections with north-south streets (e.g. Victoria, Wellington, John, James, Bay, Queen) and avoiding rail spurs;
Creation of a road barrier between the Downtown and the waterfront;
Unpalatable choices for roadway location west of Bay Street (e.g. on fill in the harbour, in the embankment above the rail corridor with very large retaining walls, or in cut-and- cover tunnel under some Dundurn Castle property and York Boulevard);
Likely to encounter contaminated property; and
Estimated costs of >$300M (1990).
In summary, in assessing the pros and cons, it was determined that the HPR concept should be abandoned. Notwithstanding the decision, challenges remain with respect to roadway capacity approaching Hwy 403 and to truck traffic to/from Hwy 403. Most of the main roadways have road allowances of only 20m (66ft), including Main and King Streets.
4.3.1.3 Connections to Highway 403 Although the concept of adding ramps to the York Boulevard/Hwy 403 interchange to/from the west was suggested on occasion over the past several decades, there has never been an investigation undertaken to determine the feasibility and cost. As the area between the King Street interchange and the Desjardins Canal is constrained by the Hamilton Cemetery, the CP rail line, the former municipal landfill (now Kay Drage Park), the Chedoke Creek, the Waterfront Trail, Cootes Paradise, and York Boulevard, there are very limited options. One location with fewer constraints than most others may be just southeast of the Bailey Bridge over the Chedoke Creek at Princess Point, but ramp connections between York Boulevard and Hwy 403 would still have to tunnel under the Hamilton Cemetery and the CP rail line. Another option may be just west of the Desjardins canal, where the need for tunnel/structures may be reduced but additional distance would be added to trips using the ramps because of a doubling-back effect.
4.3.1.4 Other Ongoing Studies The City of Hamilton is conducting parallel studies on the feasibility of implementing rapid transit, and summary reports for Phases 1 and 2 of the Hamilton Rapid Transit Feasibility Study (RTFS) are available on the City website. In the Capacity Evaluation component of the Phase 2 report, it is concluded that traffic diversion may be required from roadways on which rapid transit routes would be implemented in the Lower City. Furthermore, because of constraints in the Downtown Core, the diversion would likely be focused on alternate routes north and west of the Downtown Core.
4.3.2 DOWNTOWN TRUCK ROUTING ALTERNATIVES
Having regard to the Class EA Process, there are a number of alternatives for a truck route system in the area of the lower city bounded by Hamilton Harbour, the Red Hill Valley Parkway, the Niagara Escarpment, and Hwy 403:
4.3.2.1 The “Do Nothing” Alternative The “Do Nothing” alternative would maintain the present truck route designations in the Lower City, as illustrated in Exhibit 4-9.
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Exhibit 4-9: Existing Downtown Truck Routes
The implication is that through truck traffic will continue to be an issue.
4.3.2.2 Designate Arterial Roads as Truck Routes This alternative would designate arterial roads as truck routes, subject to the Level 1 analysis as set out in the evaluation methodology.
The designated arterial roads (major in red and minor in brown) in the Lower City are illustrated below
Exhibit 4-10: Downtown Road Classifications
Based on road classifications, arterial roads that could be added to the truck route system in the Downtown area include:
Burlington Street between James Street North and Wellington Street;
James Street North and South between Burlington Street and Main Street;
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James Street South between St. Josephs Drive and James Mountain Road;
James Mountain Road to West 5th Street/Fennell Avenue;
Wilson Street between Victoria Avenue and Sherman Avenue;
King Street between Wellington Street and Bay Street (classed as a Major Arterial);
Queen Street between Main Street and Beckett Drive;
Beckett Drive to Garth Street (classed as a Major Arterial);
Dundurn Street between Chatham Street and Aberdeen Avenue; and
Aberdeen Avenue between Longwood Road and Dundurn Street.
Many of the road sections listed above have significant limitations because of safety and operational considerations. For example, Beckett Drive and James Mountain Road are two-lane escarpment crossings with grades approaching 11%. Other locations, in particular intersections, are constrained by restricted road allowances, lack of corner clearances, and insufficient corner radii for large vehicles.
4.3.2.3 Restrict Through Truck Traffic in the Downtown Core This alternative would reduce available routes in the Downtown Core to reduce through truck traffic, while still allowing access to Hwy 403 WB and Hwy 6 North via York Boulevard. This alternative would include removing Main Street from the Truck Route system between Bay Street and Wellington Street, just as its one way pair King Street has already been removed. Through traffic through the core would be discouraged, but destinations via Hwy 6N and Hwy 403 WB would be available via York Boulevard and/or Bay/Queen/Locke/Dundurn connections to the King/Main pair, and the Claremont Access/LINC combination.
Although it would be preferable to remove Main Street and King Street from the Truck Route System further to the east to Dundurn Street, this is not considered operationally feasible because of the very short weaving distance between the Hwy 403 ramps from Toronto and from Brantford, and the intersection of Main Street and Dundurn Street.
4.3.2.4 Remove All Truck Routes in the Downtown Core This alternative would eliminate truck routes in the area bounded by Bay Street, Hamilton Harbour, Wellington Street, and the Escarpment to eliminate through truck traffic, while still permitting local deliveries. It is a much more restrictive alternative than Alternative 2.3 above, and further study with input from industry stakeholders would be required to determine the economic impact. However, it is very likely that the regulations would be very difficult to enforce. In addition, unless local deliveries were permitted from any truck route rather than the closest truck route, commerce in the core would be adversely affected.
4.3.2.5 Implement Time Restrictions This alternative would restrict routes in the Downtown Core between Bay Street and Wellington Street and on all escarpment crossings between Hwy 403 and the RHVP except for the Claremont Access, to the 7:00 a.m. to 7:00 p.m. time period. The Claremont Access has a grade of 6% and was designed to accommodate truck movements.
The multi-day classification count information from summer 2008 on York Boulevard referenced earlier indicates that truck trips within the 7:00 a.m. to 7:00 p.m. time period represent
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approximately 82% of the 24-hr truck volume, and the percentage is greater - approximately 85% - for larger combination vehicles such as semi-trailers. Count information from Cannon Street west of Wellington Street exhibits similar characteristics to York Boulevard. Other counts on Main Street, King Street, Burlington Street, and the LINC fairly consistently show that about three-quarters of all truck traffic occurs between 7:00 a.m. and 7:00 p.m.
The Hamilton Police Service has noted that enforcement between the hours of 7:00 p.m. and 7:00 a.m. will likely be very limited because of fewer staff and greater response activity during those hours.
4.3.2.6 Combine Time Restrictions with Restrictions in the Downtown Core This alternative would combine the elements of the alternatives discussed in Sections 4.3.2.3 and 4.3.2.5, i.e., removal of Main Street between Bay Street and Wellington Street from the truck route system, coupled with time restrictions on routes in the Downtown Core between Bay Street and Wellington Street and on all escarpment crossings between Hwy 403 and the RHVP except for the Claremont Access, to the 7:00 a.m. to 7:00 p.m. time period.
4.3.2.7 Strategic Changes to the Downtown Core This alternative would involve changes to links within the Downtown truck route network (e.g., removal from the network and time restrictions) with the intent of maintaining a dense, cohesive network, while attempting to divert through trucks around some sensitive areas. The two major changes that would result from this alternative include the removal of King Street, between Queen and Bay Streets, and the removal of Barton Street, from Queen Street to Wentworth Street. Removing these sections of King Street and Barton Street would address issues related to modal competition, resident‟s complaints, business improvement areas, and traffic congestion. To accommodate the removal of these two key links from the Downtown truck route network, several minor removals, and changes to existing time restrictions, would be required. 5. DATA COLLECTION AND CONSULTATION
In addition to collecting a substantial amount of quantitative data, related to truck traffic, the data collection effort for this study also involved soliciting qualitative data from the public and other stakeholders. The consultation and data collection efforts that were carried out for this study are described below. 5.1 Consultation
The study was conducted as a Master Plan Environmental Assessment. The intent of the study was to balance the interests of the public, who would generally like to have truck routes removed from any areas with residential or pedestrian facilities, with those of industry, which requires goods movement, facilitated by an abundance of truck routes. The consultation process that was carried out for this study involved a much higher level of stakeholder engagement than the minimum required (and more than is typically done) for a Master Planning study.
Consultation took the form of a total of eight (8) public information sessions (two rounds of four) to garner public input, two (2) meetings with the Technical Advisory Committee (TAC), which included representatives of the trucking industry and other interested stakeholders, four (4) meetings with various divisions of the Hamilton Chamber of Commerce, one-on-one meetings with all members of City Council, and a presentation to the City of Hamilton Association for Business Improvement Areas (HABIA). Three formal (3) meetings with the Truck Route Sub-Committee were also held over the course of the study. The relative timing of the various consultations is illustrated in Exhibit 5-1.
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Exhibit 5-1: Consultation Flow Diagram
Consultation
Truck Route Sub-Committee Meeting #1 Spring 2008
Stakeholder Orientation and Consultation Spring 2008
Public Information Centres – Round 1 Preliminary Results Spring 2008
Technical Advisory Committee Meeting #1 Spring 2008
Truck Route Sub-Committee Meeting #2 Fall 2008
Technical Advisory Committee Meeting #2 Summer 2009
Meeting with HABIA Summer 2009
Truck Route Sub-Committee Meeting #3 Fall 2009
Public Information Centres – Round 2 Preliminary Recommended Truck Route System Fall 2009
More detailed discussions of the consultation process are provided in the following sections.
5.1.1 TRUCK ROUTE SUB-COMMITTEE
The City of Hamilton created the Truck Route Sub-Committee to consider issues related to the routing of heavy vehicles through the City of Hamilton. A prime responsibility of the Sub-Committee is to guide and implement the Truck Route Master Plan. The Truck Route Master Planning process has been overseen by the Truck Route Sub-Committee of the Public Works Committee. The Sub- Committee has been involved in each major step of the process to date. Separate meetings were held with the Sub-Committee prior to each PIC set, and meetings with all City Councillors were held in small groups at least once per Councillor, based on the direction of the Sub-Committee.
An initial input to the study was the list of “Outstanding Truck Route Issues.” Common types of issues include “too many trucks on legal route,” “illegal truck movements,” and “remove route now that alternate is in place.” The complete, original list of “Outstanding Truck Route Issues” was as follows:
1. Millgrove Side Road – One Way truck route to Hwy. # 6 signal (many illegal truck movements);
2. Westbrooke Road – Boundary Road (legal truck route in Niagara, not in Hamilton);
3. Haldibrook Road – Boundary Road (legal truck route in Haldimond, not in Hamilton);
4. Upper Mount Albion Road (Stone Church Road – Rymal Road) – Residents want it moved to Pritchard Road;
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5. McMaster University Area (Sterling, Forsyth, Dalewood, Haddon, King St. W). – illegal truck movements;
6. Fruitland Road (Hwy. # 8 – northerly) – Residents complaining, to many trucks on this legal route;
7. Nash Road (King St. to Barton St.) – Part time Truck Route, residents were promised review to remove status upon opening of the R.H.V.P.;
8. Milburough Town Line Road – Boundary Road (large number of trucks on substandard pavement conditions);
9. Princess St. (between Sherman and Birch) – illegal truck volumes using as a short cut to by-pass Barton Street;
10. Scenic Drive – residents complaining of the high number of illegal truck movements;
11. Glow Avenue – residents complaining of the high number of illegal truck movements;
12. White Church / Binbrook Road (Hwy. # 56 – Hwy. # 6) – designated in by-law as “Specified Users” – Police will not enforce, residents complain of the high number of illegal trucks;
13. Regional Road # 20 (east of Upper Centennial to City Limit) – complaints regarding to many trucks on this route;
14. Stone Church Road (Upper James – Upper Wellington) – Too many trucks on this truck route;
15. Strathearne Avenue (Barton – Britannia) – Complaints regarding illegal truck traffic;
16. Lakeview Dr. (North Service Road) – Too many trucks on this legal truck route;
17. Sanatorium Road – residents complaining about illegal truck traffic;
18. Ridge Road – Too many trucks on this legal truck route;
19. Rennie Street – Too many trucks on this legal truck route;
20. Concession 4 W – high number of illegal trucks from Hwy. # 6;
21. R.H.V.P. – Request to direct eastbound truck traffic onto Mud Street instead of Dartnall or Trinity Church to Rymal;
22. The Eastern border with adjacent Niagara region has some gaps in truck routing; and
23. There are multi modal issues related to the Aberdeen hub.
5.1.2 PUBLIC CONSULTATION
The Truck Route Master Plan has followed the Public Consultation requirements of Municipal Class Environmental Assessment (EA) process, as per the Municipal Engineers Association document (Oct. 2000, as amended in 2007). More specifically the Class EA process followed “Approach#1” described in the above document, as “...at a broad level of assessment thereby requiring more
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detailed investigations at the project-specific level in order to fulfil the Municipal Class EA documentation requirements for the specific Schedule B and C projects identified within the Master Plan”. Requests for an order to comply with Part II of the EA Act would only be possible for specific Schedule B or C projects identified in the Master Plan and not the Master Plan itself. No such projects have been proposed within this Master Plan to date.
The project team expanded the public consultation approach beyond the minimal requirements for public consultation of Class EA, to ensure that an understanding of issues and opportunity for input was maximized. The expanded consultation approach for this Master Planning study included four Public Information Centres (PICs), located throughout the City, at the initial stage of the process, to gather background input from the public, and to help formulate the problem and opportunity statement.
A second round of four PICs was held, to fulfil the Class EA mandatory point of contact with agencies and the public requirements. At the time of the second round of PICs, the problem and opportunity statement and alternative solutions, as well as the preliminary preferred alternative, were presented.
Notices for both rounds of PICs were sent out to affected agencies, internal City Departments, and interested members of the public. Each Notice was also advertised in the Hamilton Spectator, all six Community newspapers, and The View, two weeks in advance and one week in advance of each set of PICs. Summaries of the PICs (i.e., information presented and public input) are provided in Appendix A.
A brief summary of the information presented at each of the PICs is provided below:
Orientation Session: At the initial stage of the process, an Orientation Session was held on May 27, 2008. The purpose of the orientation session was to introduce the study, explain the process, and to invite the public to provide input on problems and opportunities.
Preliminary Results: Three PICs were held on June 17, 18 and 19, 2008. The purpose of the PICs was to explain the study process, to present the problems and opportunities that had been identified to date, and to present the preliminary evaluation methodology and alternative solutions to be evaluated. Based on the public input from the Orientation Session, the three PICs included general information about key issues, including truck route signing, and legal versus illegal truck movements. Feedback on the material was requested and documented.
Recommended Truck Route Network: Four PICs were held on November 5 and 12, and December 2 and 10, 2009 to fulfil the Class EA mandatory point of contact with agencies and public. At this time the problem and opportunity statement and alternative solutions, as well as the preliminary preferred alternative, were presented. Feedback on the material was requested and documented. At this round of PICs, the initial concepts for policies related to several important truck rout issues were discussed, including permissive and restrictive truck signing, and restrictive engine brake signing.
In addition to the PICs, a study link was created on the City of Hamilton website. This link provided electronic versions of the PIC material. It also invited the public to submit by email problems or opportunities. Each submission was recorded as an issue, and considered through the study process.
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Many comments were received from members of the public throughout the study. Petitions were received for three specific locations in the City: Fruitland Road (submitted prior to study commencement); Nebo Road (after first round of PICs); and Dickenson Road (presented at second round of PICs). There was also a delegation to Public Works Committee from Fruitland Road residents (after the first round of PICs). All public comments were given consideration as part of the Master Planning process, and in several instances, where appropriate specific responses were issued to members of the public, by the City.
When the truck route study was initiated there were approximately 25 locations in the City of Hamilton which were known areas where trucks had been a source of ongoing public concern and comment (the original list of “Outstanding Truck Route Issues”). Following the consultations and meetings, that list grew to over 100 locations. Each location was considered for addition or removal (through application of the network evaluation process, Section 4) from the truck route system, and in some instances the information presented by the public had a significant impact on road links that were removed from the truck route network.
5.1.3 TECHNICAL ADVISORY COMMITTEE
A Technical Advisory Committee (TAC) was created. It consisted of key industry stakeholders, including representatives of the port, airport, Chambers of Commerce, trucking associations, Hamilton Police Service, the Ministry of Transportation Ontario and the Ministry of the Environment. The complete list of stakeholders invited to participate in the TAC is provided in Appendix B.
The TAC was consulted at two points in the study. A presentation was made in June 2008 to invite the TAC members to provide input on problems and opportunities. TAC members then provided input over the next several months. The draft Truck Route Network was presented to the TAC in January, 2009 to solicit feedback. The two TAC meetings were held in tandem with PICs so that members of the industry/other stakeholders could provide their input close to the time of each PIC set of meetings.
Additional meetings were held with the following agencies/ stakeholders:
HABIA – Hamilton Association of Business Improvement Areas (1 meeting);
Chamber of Commerce (4 meetings);
Neighbourhood Ward Meeting (Ward #6 – 1 meeting); and
Haldimand County (1 meeting).
All of the comments received from the industry, businesses and agencies contacted have been from/via the TAC membership. There was one petition received from the Ancaster Business Improvement Association (BIA). 5.2 Field Data
Initial field data was provided by the City of Hamilton in the form of a substantial collection of Turning Movement Counts (TMC) and Automatic Traffic Recorder (ATR) data. In total, well over 1000 traffic counts were accumulated throughout the course of the project. These traffic counts were used to provide insight into current truck traffic patterns across the city, as well in the immediate area of the links considered during the Level 3 Analysis.
Throughout the project, as gaps in the initial set of traffic data were identified, additional counts were carried out to ensure full data coverage in support Level 3 Analysis areas.
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Beyond TMC and ATR data, a number of supplementary site investigations were carried out in regards to truck traffic patterns in the City. These studies were conducted in support of individual issues (aka „hot spots‟) identified as the project progressed.
Supplementary site investigations were carried out for over 45 locations across Hamilton, and consisted of field observations, measurement of road geometrics, and truck traffic counts.
Further field data collection exercises included an evaluation of truck travel times along Main Street through the downtown core, truck following exercises, in the downtown core, to identify origin- destination patters, and an investigation into truck traffic patterns on the Kenilworth Access. 5.3 Collision Data
The City of Hamilton provided historic collision data for all collisions on City roads that involved trucks between January 1, 2003 and December 31, 2007. Given that the data set contained only limited information on each collision (initial impact type, temporal and environmental conditions, and driver information were omitted) it was not possible to do a detailed analysis of collision trends or causation. However, some basic numerical analysis was possible:
The data set contained entries for a total of 860 collisions;
Of the 860 collisions, truck drivers were determined to be at-fault in 335 incidents (approximately 39%), which includes 156 single vehicle collisions (fault was determined based on the driver actions reported in the collision records);
The breakdown of truck collisions by severity was 1% (10) fatal collisions, 33% (282) personal injury collisions, and 66% (568) property damage only (PDO) collisions;
Of the ten fatal collisions truck drivers were at-fault in four, including 2 single vehicle collisions;
Nine locations (roads) experienced 25 or more collisions (5 or more per year) over the five-year analysis period, they include Main Street (Hamilton), Barton Street, Upper James Street, King Street (Hamilton), Burlington Street, Centennial Parkway, Rymal Road, Parkdale Avenue, and South Service Road; and
Truck collisions in the Hamilton Downtown Core represent 17% of the total truck collision for the analysis period; the collision severity breakdown was 1% fatal, 28% injury, and 71% PDO.
Based on the information presented above, the majority of the collisions involving trucks were not attributable to truck operator actions. However, the data also suggest that collisions involving trucks are likely to result in personal injuries. Although the data show that truck collisions are occurring across the entire City, they are most frequent on major urban arterials and in employment lands, where heavy truck traffic is generally concentrated.
Truck collisions rates, representing the number of truck collisions per million vehicle kilometres travelled, were calculated for some links (where data were available), and those rates are presented along with other segment data in Section 6.4.3.
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6. DEVELOPMENT OF TRUCK ROUTE NETWORK
In the following sections, the development of the three truck route network alternatives are described in detail. 6.1 Geographic Regions
Although it is most relevant to the development of the Alternative 3 truck route network, the City of Hamilton was subdivided into eight geographic regions for evaluation. The eight geographic regions were defined based on a common or inter-connected set of issues and/or opportunities, and dependence on a limited number of key roads. The eight geographic regions are: Waterdown/East Flamborough; West Flamborough; Glanbrook/Airport; Parkways Corridor; Stoney Creek; Downtown Hamilton; East Hamilton/Port Area; and West Hamilton/Dundas. Maps and descriptions of the eight geographic regions, including approximate boundaries, key roads, communities, primary truck traffic generators, issues, and opportunities, are described in Sections 6.1.1 through 6.1.8.
6.1.1 WATERDOWN/EAST FLAM BOROUGH
A map of this geographic region is presented in Exhibit 6-1; a description of region attributes follows.
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Exhibit 6-1: Waterdown/East Flamborough
Approximate Boundaries Hamilton municipal boundary Niagara Escarpment Middletown Road
Key Roads Highway 6 Highway 5
Communities Waterdown Millgrove Carlisle Freelton Flamboro Centre
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Primary Truck Traffic Generators Agriculture Aggregate mineral extraction Equestrian sports
Issues/Opportunities Congestion at Highway 5/6 intersection Access to Highway 6 from concession roads Key link between Highways 401 and 403 Waterdown E-W Road 6.1.2 WEST FLAMBOROUGH
A map of this geographic region is presented in Exhibit 6-2; a description of region attributes follows.
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Exhibit 6-2: West Flamborough
Approximate Boundaries Hamilton municipal boundary Middletown Road Jerseyville Road
Key Roads Highway 5 Highway 8
Communities Sheffield Rockton
Primary Truck Traffic Generators Agriculture Aggregate mineral extraction Equestrian sports
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Issues/Opportunities Peters Corners
6.1.3 GLANBROOK/AIRPORT
A map of this geographic region is presented in Exhibit 6-3; a description of region attributes follows.
Exhibit 6-3: Glanbrook/Airport
Approximate Boundaries Hamilton municipal boundary Niagara Escarpment Garner Road/Rymal Road
Key Roads Highway 6 Regional Road 56 White Church Road/Binbrook Road Highway 20
Communities Binbrook Mount Hope
Primary Truck Traffic Generators Agriculture Aggregate mineral extraction Landfill Hamilton International Airport/Airport Employment Growth District North Glanbrook Business Park Ancaster Business Park
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Issues/Opportunities Boundary connections to Niagara Region and Haldimand County Seasonal load restrictions Rural road cross-sections Few existing east-west/north-south truck routes
6.1.4 PARKWAYS CORRIDOR
A map of this geographic region is presented in Exhibit 6-4. A description of region attributes follows.
Exhibit 6-4: Parkways Corridor
Approximate Boundaries Lake Ontario Niagara Escarpment Garner Road/Rymal Road Jerseyville Road Parkdale Avenue Centennial Parkway
Key Roads Highway 403 QEW Lincoln M. Alexander Parkway (Linc) Red Hill Valley Parkway (RHVP)
Communities Hamilton South (Mountain) Ancaster Hamilton East (Downtown/Port)
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Primary Truck Traffic Generators Interregional/international goods movement Retail commerce Hamilton International Airport/Airport Employment Growth District North Glanbrook Business Park Hospitals
Issues/Opportunities Interchange connections to the Linc and RHVP Congestion at Linc and Highway 403 interchange Incidents on Linc and RHVP Escarpment crossings
6.1.5 STONEY CREEK
A map of this geographic region is presented in Exhibit 6-5; a description of region attributes follows.
Exhibit 6-5: Stoney Creek
Approximate Boundaries Lake Ontario Niagara Escarpment Hamilton municipal boundary Red Hill Valley Parkway
Key Roads QEW Highway 8
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RHVP Fruitland Road
Communities Stoney Creek
Primary Truck Traffic Generators Interregional/international goods movement Stoney Creek Business Park East Hamilton Industrial Area
Issues/Opportunities Interchange connections to the QEW Connections between Highway 8 and QEW
6.1.6 DOWNTOWN HAMILTON
A map of this geographic region is presented in Exhibit 6-6; a description of region attributes follows.
Exhibit 6-6: Downtown Core
Approximate Boundaries Lake Ontario Niagara Escarpment Highway 403 Wellington Street
Key Roads King Street York Boulevard Main Street Dundurn Street
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Barton Street Queen Street
Communities Hamilton Downtown Core
Primary Truck Traffic Retail commerce Generators Hamilton Harbour
Issues/Opportunities Through truck traffic Proposed one-way to two-way conversions Rapid transit planning BIAs efforts to improve streetscapes Escarpment crossings
6.1.7 EAST HAMILTON/PORT AREA
A map of this geographic region is presented in Exhibit 6-7; a description of region attributes follows.
Exhibit 6-7: East Hamilton/Portlands
Approximate Boundaries Lake Ontario Niagara Escarpment Parkdale Avenue Wellington Street
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Key Roads King Street Burlington Street Main Street Kenilworth Avenue Barton Street Queen Street
Communities Hamilton Downtown East
Primary Truck Traffic Generators Heavy/medium industry Retail commerce Port of Hamilton
Issues/Opportunities Through truck traffic Port access Access to Highway 403/QEW Escarpment crossings
6.1.8 WEST HAMILTON/DUNDAS
A map of this geographic region is presented in Exhibit 6-8; a description of region attributes follows.
Exhibit 6-8: West Hamilton/Dundas
Approximate Boundaries Niagara Escarpment
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Highway 403
Key Roads King Street W Main Street W Highway 8 Wilson Street
Communities Dundas Ancaster
Primary Truck Traffic Generators Aberdeen Hub Agriculture McMaster University
Issues/Opportunities Access to Highway 403 Ancaster BIA Escarpment crossings
6.2 Alternative 1 Network
The Alternative 1 truck route network represents the “Do Nothing” alternative, and it was developed by making no changes to the existing truck route network. The existing City of Hamilton truck route network has evolved over the past thirty years as a result of infrastructure and land use development, and municipal amalgamation. Over that time links have been added to and removed from the network on an individual basis, and a formal network-wide evaluation has never before been undertaken. The Alternative 1 – “Do Nothing” (existing) truck route network is illustrated in Exhibit 6-9 and Exhibit 6-10.
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Exhibit 6-9: Alternative 1 – “Do Nothing” Truck Route Network
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Exhibit 6-10: Alternative 1 – “Do Nothing” Truck Route Network (Zoom)
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6.3 Alternative 2 Network
The Alternative 2 truck route network focuses primarily on reducing the number of links in the truck route network, using the existing truck route network as a starting point. This alternative was developed based on a series of individual meeting that were held with each of the Ward Councillors for the City of Hamilton, and it represents specific issues raised by their constituents. The Alternative 2 truck route network is illustrated in Exhibit 6-11 and Exhibit 6-12
.
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Exhibit 6-11: Alternative 2 Truck Route Network
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Exhibit 6-12: Alternative 2 Truck Route Network (Zoom)
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6.4 Alternative 3 Network
The evaluation methodology for the Alternative 3 network was presented in Section 4, the inputs and results are presented below.
6.4.1 LEVEL 1 ANALYSIS
The Level 1 analysis focused on the application of first principals to determine a base truck route network. The full methodology is described in Section 4.2.1.
Exhibit 6-13 provides an overview of the arterial roads (outside of the Downtown Hamilton geographic region) that were not included in the L1 network.
The full L1 results are presented in Appendix C.
Exhibit 6-13: Arterial Links Not Included in the L1 System
Arterial Road Main Road Extents Classification Glanbrook/Airport Woodburn Rd Rymal Rd to Binbrook Rd Rural Arterial West Hamilton/Dundas Jerseyville Rd W Wilson St E to Meadowbrook Dr Minor Arterial McNiven Rd Mohawk Rd to Golf Links Rd Minor Arterial Waterdown/East Flambourough Mountain Brow Rd E Mill St S to King Rd Minor Arterial Parkways Corridor Jerseyville Rd W Regional Hwy 52 to Wilson St E Rural Arterial Southcote Rd Garner Rd to Golf Links Rd Rural Arterial
6.4.2 LEVEL 2 ANALYSIS
The Level 2 analysis compared the Level 1 truck route network against the existing truck route network, identifying variances. The full methodology is explained in Section 4.2.2.
Exhibit 6-14 provides an overview Level 2 process by geographic area. The full L2 results are presented in Appendix D.
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Exhibit 6-14: Level 2 Analysis Variance Summary
Geographic Zone Noted Variances
Noted variances for the Glanbrook/Aiport area included White Church/Binbrook Road, Halidbrook Road and other collector roads (Hall Rd, Third Line Rd.)
White Church Road/Binbrook Road was included in the Level 2 Network on the basis of its role as a link to employment areas and Glanbrook/Airport regional centres.
Hall Road and Third Line Road were included based on their role as links to Truck Routes in Adjacent Municipalities.
No significant role was identified for Halidbrook Road; it was not included in the Level 2 Network.
A large number of industrial collector roads were identified as variances in the Level 2 Analysis. These roads were generally within industrial park areas north of Barton Street. Stoney Creek These roads were included in the Level 2 Network as they provide important links within the industrial employment areas.
A large number of industrial collector roads were identified as variances in the Level 2 Analysis. These roads were generally within industrial park and Portland areas north of Barton Street. East Hamiton/Port Area These roads were included in the Level 2 Network as they provide important links within the industrial employment areas.
A number of collector roadways were identified as variances within the Downtown Core.
Hamilton Downtown Core These roadways were included in the Level 2 Network because it was determined that a greater network density is required to control truck movements in the Downtown Core.
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Geographic Zone Noted Variances
A total of 7 variances were identified in the Level 2 Analysis for West/Hamilton Dundas.
Longwood Road S, York Rd and York Street were included in the Level 2 network based on West Hamiton/Dundas their role as links to provincial highways.
Mill St, Wellington St S, Hatt St and Market St were included based on their role as links to the employment lands at the base of Mill St.
Waterdown/East Flamborough No Level 2 Variances were noted.
West Flamborough No Level 2 Variances were noted.
No significant role was identified for Kilbride Parkways Corridor Road; it was not included in the Level 2 Network.
6.4.3 LEVEL 3 ANALYSIS
Following the Level 2 analysis, individual links requiring further investigation were considered during the Level 3 analysis. These links included roadways of special concern that were brought to the attention of the study team throughout the public/stakeholder consultation process, issues identified in consultation with city staff/Hamilton Police Service, and questions raised by the study team. The following subsections (6.4.3.1 through 6.4.3.14) present the Level 3 analysis of key links throughout the City, and provide recommendations/justifications for their status in the truck route network.
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6.4.3.1 Barton Street Street Name: Barton Street
Extent From: Queen Street To: Wentworth Street
Current Truck Route Status Full Time Part-Time Specified User Not Designated
Public Stakeholder Input/Comments: • Requests have been made by Councillors and the BIAs to remove Barton Street from the truck route network between Queen Street and Ottawa Street. • Recently, a significant effort has been made to make Barton Street more accommodating to pedestrians and to encourage business development, and a reduction in through truck traffic will support that effort • Burlington Street and Cannon/Wilson form good alternates for through truck traffic, although Wilson will be converted to two-way in 2010, reducing its capacity. • The geometry of Barton Street, Victoria Avenue to Wentworth Street, is challenging for trucks. Burlington Street and Cannon Street are better suited. • The Hamilton Chamber of Commerce requested Barton Street remain open and accessible from Wentworth Street to Ottawa Street due to the „industrial make-up” of the area. The Chamber recognizes change in streetscape at Wentworth Street, hence the recommendation to remove the truck route only west of Wentworth Street.
Data Regarding Segment: • 2004-2008 commercial ADT: Barton (Queen-Kenilworth): 492 • Total truck collisions 2004-2008: Barton (Queen-Kenilworth): 33 (Rate: 7.1) • Hamilton Road Classification Report identifies Barton Street as a Minor Arterial Road. • Level 1 Criteria: Link to Employment Area, Link to Port
Impacts of Change: • Barton Street currently serves a significant volume of truck traffic, and removal of the link would likely result in truck traffic being shifted to Cannon Street, and perhaps to a lesser extent, Burlington Street • Cannon Street and Burlington Street represent more appropriate characteristics for truck traffic in terms of geometrics and land uses.
Recommendation/Justification: • Recommended for removal between Queen Street and Wentworth Street based on geometrics, BIA considerations and availability of alternative routes. • Removal of this section of Barton Street would also necessitate the removals of Hess Street from Barton Street to Stuart Street, Sanford Avenue from Cannon Street to Barton Street, John Street from Cannon Street to Barton Street, and Caroline Street from Barton Street to Stuart Street to avoid dead end truck route segements.
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Proposed Truck Route Status Full Time Part-Time Specified User Not Designated
6.4.3.2 Dundurn Street Street Name: Dundurn Street
Extent From: York Boulevard To: King Street
Current Truck Route Status Full Time Part-Time Specified User Not Designated Public Stakeholder Input/Comments:
• Between York Boulevard and King Street the adjacent land uses are almost exclusively residential, with direct access • One reason for the current level of truck traffic on Dundurn Street is the difficulty of accessing Dundurn Street southbound from the Highway 403 exit from Toronto/Burlington origin. • Southbound Dundurn Street, north of King Street, is congested during both peak periods daily. • The Hamilton Chamber of Commerce requested Dundurn Street remain in the truck route network from York Street to King Street due to large volumes and lack of alternative routes. Data Regarding Segment:
• 2004-2008 commercial ADT: Dundurn (York-King): 477 • Approximately 20-30% of truck traffic on Dundurn is northbound, the rest is southbound • Total truck collisions 2004-2008: Dundurn (York-King): 9 (Rate: 19.3) • Hamilton Road Classification Report identifies Dundurn Street as a Minor Arterial Road • Level 1 Criteria: Link to Downtown • Next adjacent northbound truck route is Bay Street, which would put more trucks into the downtown core. Bay Street currently carries approximately 210 trucks in a 24 hour period. • Rapid transit on King Street will alter traffic flows on Queen Street, King Street, etc. so altering truck flows at this time is premature. Queen Street now carries about 350 trucks in 24 hours.
Impacts of Change: • Dundurn Street currently serves a significant volume of truck traffic, and removal of the link would likely result in truck traffic being shifted to Queen Street/Bay Street and Highway 403 • While redistribution to Highway 403 is desirable, redistribution of volumes to Queen Street and Bay Street represents an undesirable alternative, as they already experience significant truck volumes and peak congestion as well. • Another factor is the extreme difficulty of exiting Highway 403 from the Burlington/Toronto side and trying to get to Dundurn South for a local delivery. This requires crossing 5 lanes of traffic in a very short distance, almost impossible for a truck at any time, especially rush hour. A much
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easier alternative is for truck traffic to exit 403 at York and travel straight through King and Main. The other choice is to pass both exits and use the exit beside the Columbia School to turn back onto Main Street - not ideal given the student crossings.
Recommendation/Justification: • Recommended for retention based on expected impact to adjacent truck routes and lack of viable alternatives. • Once the Rapid Transit Project is defined, it may be possible to revisit this recommendation.
Proposed Truck Route Status Full Time Part-Time Specified User Not Designated
6.4.3.3 Fiddler’s Green Road Street Name: Fiddler‟s Green Road
Extent From: Garner Road To: White Church Road
Street Name: Airport Road/ Butter Road
Extent From: Fiddlers Green Road To: Upper James Street
Current Truck Route Status Full Time Part-Time Specified User Not Designated
Public Stakeholder Input/Comments: • Currently, both Fiddler‟s Green Road and Airport Road/Butter Road are truck routes for specified users only. Most of the specified users are airport destined. • The Highway 6 by-pass is a preferable alternative for through traffic and airport traffic. • There have been some comments noted related to future access to the proposed airport development lands, and whether Fiddlers Green would be required. “Shortest path” rules and the Book Road access to the by-pass should be sufficient to accommodate development in the short- term.
Data Regarding Segment: • Speed and Classification Counts: Airport Road - West of Highway 6 – 24 Hours: • 4972 Total Vehicles • 259 Trucks (5.2%) • 83 Trucks Class 8 or higher – Tractor Trailers (1.7%) • Total truck collisions 2004-2008: Airport (Hwy #6 – Butter) : 3 (rate 1.0) • Speed and Classification Counts : Fiddler‟s Green – North of Butter Road – 24 Hours: • 3935 Total Vehicles
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• 244 Trucks, (6.2%) • 50 Trucks Class 8 or higher – Tractor Trailers -1.3% • Total truck collisions 2004-2008: Fiddler‟s Green (Garner – Carluke) : 4 (rate 0.4) • Hamilton Road Classification Report identifies both Airport Road and Butter Road as a Rural Arterial Roads • Level 1 Criteria: Link to Employment Area, Link to Airport.
Impacts of Change: • Some local truck traffic has remained on Fiddler‟s Green Road after the opening of Highway 6 New, but the provincial highway extension has a direct connection to Highways 403 and 6 and is a faster route, so only local traffic still uses Fiddlers Green. • Access to Highway 6 New from Rymal/Garner is not possible, so Fiddlers Green may be required for local delivery routing to the south. • By keeping Fiddlers Green in the system, a major local industry is properly served, that would otherwise be faced with a circuitous access route. • By making Fiddlers Green a standard truck route, the enforcement issue associated with specified users is eliminated. • By deleting Airport/Butter, airport-destined truck traffic is required to route via Highway 6 New, and avoids passing through the Mount Hope residential area.
Recommendation/Justification: • Fiddlers Green recommended for retention as full-time route based on local access to several major businesses. • Airport Road/Butter Road recommended for removal based on availability of higher classification route.
Proposed Truck Route Status: Fiddlers Green Road Full Time Part-Time Specified User Not Designated
Proposed Truck Route Status: Butter Road, Airport Road Full Time Part-Time Specified User Not Designated
6.4.3.4 Fruitland Road Street Name: Fruitland Road
Extent From: Barton Street To: Queenston Road (Highway 8)
Current Truck Route Status Full Time Part-Time Specified User Not Designated
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Public Stakeholder Input/Comments: • Local residents have expressed concerns regarding truck traffic and associated pollution, noise and vibrations. Expressed concern with existing police enforcement levels. • Largely residential with direct access from Barton to Highway 8 • Industrial uses north of Barton Street, Fruitland Road has interchange with the Queen Elizabeth Way (QEW), therefore is a truck route north of Barton Street, since MTO does not permit prohibition of trucks at an interchange. • Provides the only north-south connection between Barton Street and Highway 8 from Grays Road to Fifty Road (~3.5 km) • Grays Road (part-time truck route) and Fifty Road (full-time truck route) present comparable situations. • Grays Road is suitable for a part-time designation, since Centennial Parkway provides a near-by alternative for evening use. • There is an ongoing Fruitland Road Class Environmental Assessment to determine whether an alternate road to Fruitland Road is required. • Proposed restriction to 7 AM – 7 PM truck traffic (currently full-time) from Barton Road to Highway 8 was presented as Alternate 3 at PIC #2 • Hamilton Chamber of Commerce suggested Fruitland Road remain in the Truck Route Network as a full time route from the QEW to Barton Street, and the downgrade of the remaining portion from Barton Street to Highway 8 to part-time. • On-going Environmental Assessment may provide an entirely new option for routing truck traffic in the immediate vicinity of Fruitland Road.
Data Regarding Segment: • Truck Observations 2009: 59 Legal Trucks between 7:00 AM and 10:00 AM, 12 Legal Trucks between 8:00–11:00 PM • Hamilton Road Classification Report identifies Fruitland Road as a Minor Arterial Road • Speed and Classification Counts: Grays Rd. south of Barton – 24 Hours: • 5515 Total Vehicles • 207 Trucks (3.8%) • 41 Trucks Class 8 or higher – Tractor Trailers (0.7%) • Speed and Classification Counts: Fruitland Road north of Barton – 24 Hours: • 13703 Total Vehicles • 2258 Trucks (16.5%) • 1233 Trucks Class 8 or higher – Tractor Trailers (9.0%) • Speed and Classification Counts: Fruitland Road north of Highway 8 – 24 Hours: • 8401 Total Vehicles • 505 Trucks (6.0%) • 191 Trucks Class 8 or higher – Tractor Trailers (2.3%) of total traffic • 121 Trucks from 7 PM-7 AM (24% of Truck Traffic) • Level 1 Criteria: Link to Employment Area, Link to Provincial Highway • Collision history indicates 0 truck collisions in 5 years (2004-2008)
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Impacts of Change: • Removal/downgrading of Fruitland Road would shift some volumes to Fifty Road, which is distant, but similar in character. • Removal/downgrading of Fruitland expected to worsen illegal truck traffic on routes like DeWitt, which already have noted issues. • Downgrading to part-time of Fruitland Road would lessen impact of truck traffic in terms of pollution, noise and vibration during evening hours and would remove approximately 24% of total truck volumes from Fruitland Road (7 PM-7 AM volumes), although actual volumes as measured is minimal. • Restriction of Fruitland Road (either part- or full-time) would leave no north-south connections between Centennial Parkway and Fifty Rd. (10.3 km) during evening hours or all day, requiring long distance rerouting of north-south truck traffic.
Recommendation/Justification: • Recommended for retention based on expected impact to adjacent truck routes. • Once Fruitland Road Class Environmental Assessment is completed, it may be possible to revisit this recommendation, or a completely different alternative may be planned.
Proposed Truck Route Status Full Time Part-Time Specified User Not Designated
6.4.3.5 Gage Avenue Street Name: Gage Avenue
Extent From: Lawrence Road To: Barton Street
Street Name: Lawrence Road
Extent From: Gage Avenue To: Red Hill Valley Parkway
Current Truck Route Status Full Time Part-Time Specified User Not Designated
Public Stakeholder Input/Comments: • Requests have been made by Councillors and the BIA to remove all five parallel links, Sherman Avenue, Gage Avenue, Ottawa Street, Kenilworth Avenue and Parkdale Avenue, from the truck route network. • The Police Service has indicated that at least a minimum density of north-south connecting links is required in this area to support truck route enforcement, meaning that two adjacent major links
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could not be deleted simultaneously. • Gage Avenue and the connection to Lawrence Road are a logical deletion given the relatively low volumes and significant residential boundary length. This means that Sherman Avenue and Ottawa Street should remain in the system for effective enforcement. • The Hamilton Chamber of Commerce requested that arterial roads remain open and accessible north of Barton Street, in support of industrial parks. • Level 1 Criteria: Link to Provincial Employment Area, Link to Port
Data Regarding Segment: • 2004-2008 commercial ADT: • Sherman Avenue (Main-Burlington): 172 • Gage Avenue (Lawrence -Barton): 192 • Ottawa Street (Lawrence-Burlington): 145 • Kenilworth Avenue (Main -Burlington): 916 • Parkdale Avenue(King-Brampton): 478 • Total truck collisions 2004-2008: • Sherman Avenue (Main-Burlington): 7 (Rate: 12.6) • Gage Avenue (Lawrence -Barton): 6 (Rate: 1.2) • Ottawa Street (Lawrence-Burlington): 16 (Rate: 23.6) • Kenilworth Avenue (Kenilworth TC-Burlington): 16 (Rate: 3.5) • Parkdale Avenue (King-Brampton): 14 (Rate: 6.9) • 24 Hour Expanded Counts: 160 Trucks Northbound, 130 Trucks Southbound on Gage Road north of King St. • Hamilton Road Classification Report identifies both Gage Avenue and Lawrence Road as Minor Arterial Roads
Impacts of Change: • All north-south links currently serve significant volumes of truck traffic, and removal of any of them would result in truck traffic being shifted to the adjacent roadways. • Gage Avenue commercial ADT of 192 will likely be split roughly 50/50 between Sherman Avenue and Ottawa Street, representing an increase in truck volumes of approximately 56% on Sherman Avenue and 66% on Ottawa Street.
Recommendation/Justification: • Recommended for removal based on connection to Lawrence Road, residential frontage and relatively low overall truck volumes, therefore the impact of transferred traffic should not be too great. • Lawrence Road is recommended for removal from Gage Avenue to the RHVP in conjunction with the removal of Gage Avenue, as King/Main are more suitable truck routes. • The removal of Lawrence Road would subsequently necessitate the removals of short portions of Ottawa Street and Cochrane Road from Lawrence Road to King Street, to eliminate dead end links.
Proposed Truck Route Status Full Time Part-Time Specified User Not Designated
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6.4.3.6 Garth Street Street Name: Garth Street
Extent From: Mohawk Road To: Rymal Road
Current Truck Route Status Full Time Part-Time Specified User Not Designated
Public Stakeholder Input/Comments: • Garth Street provides access to the Lincoln Alexander Parkway, and it should be part of the truck route network between Mohawk Road and Rymal Road. (Level 1 Criteria) • Hamilton Chamber of Commerce requested the implementation of Garth Street south of the Lincoln Alexander Parkway be a part-time truck route, suggesting that there is no current demand for a full-time route. • As a minor arterial roadway, Garth Street meets initial Level 1 criteria for inclusion. • Access to and from Lincoln Alexander represents a key component of an effective Truck Route Network.
Data Regarding Segment: • 7 Hour Counts: Garth Street south of Rymal Road: • 83 Trucks Northbound (4.1%) • 79 Trucks Southbound (2.2%) • Hamilton Road Classification Report identifies Garth Street as a Minor Arterial Road • Level 1 Criteria: Link to Provincial Highway (via Lincoln Alexander Parkway) • Access to developing industrial / commercial airport areas • Collision history indicates 2 truck collisions in 5 years (2004-2008)
Impacts of Change: • Provision of access to and from the Lincoln Alexander Parkway. • Likely minor increase in truck traffic on Garth Street.
Recommendation/Justification: • Recommended for inclusion in Truck Route Network based upon access to Lincoln Alexander Parkway (Level 1) • Inclusion initially as only a part-time route is required to match to part-time status of Mohawk Road and removal of Garth Street, north of Mohawk Road, from the truck route network.
Proposed Truck Route Status Full Time Part-Time Specified User Not Designated
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6.4.3.7 Kenilworth Access Street Name: Kenilworth Access/ Kenilworth Avenue South/Mountain Brow Boulevard/Upper Ottawa St.
Extent From: Main Street To: Upper Gage Avenue/Fennell Avenue
Current Truck Route Status Full Time Part-Time Specified User Not Designated
Public Stakeholder Input/Comments: • Removal of the Kenilworth access was requested by residents on Mountain Brow Blvd. to reduce truck flows in front of their residences. Concerns were also expressed regarding property values, geological implications of truck traffic and roadway setbacks • Hamilton Chamber of Commerce requested Kenilworth Ave., the Kenilworth Access and Upper Ottawa St. remain open and accessible as Kenilworth/Kenilworth access serves as the only full- time escarpment crossing between RHVP and Claremont Access.
Data Regarding Segment: • 2004-2008 commercial ADT: • Kenilworth Access (Kenilworth TC-Mountain Brow): 186 • Total truck collisions 2004-2008: • Kenilworth Access (Kenilworth TC-Mountain Brow): 3 (Rate: 4.95) • Truck Observations 2010: 201 Trucks From 8:00 AM to 4:00 PM – 126 Exempt (School buses, City waste and service vehicles, etc.), 75 Not Exempt; visual observation found only 3 full size semi-rigs in 7 hours • Roadway just recently completely reconstructed. Design was intended to accommodate trucks. Drainage and stability improves as a result. • Speed and Classification Counts – 24 Hours - Mountain Brow: • 7194 Total Vehicles Eastbound • 248 Trucks Eastbound (3.4%) • 38 Trucks Eastbound Class 8 or higher • 5925 Total Vehicles Westbound • 205 Trucks Westbound (3.5%) • 30 Trucks Westbound Class 8 or higher • Hamilton Road Classification Report identifies Mountain Brow Boulevard as a Minor Arterial Road • Level 1 Criteria: Link to Employment Area, Link Across Significant Natural Barrier, Like to Sub- Regional Centre, Link to Port • Only full-time escarpment crossing for trucks between Claremont and RHVP. • Travel time via RHVP if Kenilworth Access removed from track route system ranges for 30% more to 300% (three times) more, depending on start and end points. • Travel distance via RHVP if Kenilworth Access removed from truck route system is 6 to 7 times as far, depending on start and end points.
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Impacts of Change: • The Kenilworth Access is a major link across the escarpment for intra city commercial operations, serving such institutions as Henderson Hospital and the Concession Street BIA. Removal would force traffic from the east end of the BIA to drive the length of the BIA to access the truck route network.
Recommendation/Justification: • Kenilworth South and Kenilworth Access are designated as Major Urban Arterial Roadways, and as such are intended to carry truck volumes • Mountain Brow Road is designated as Minor Arterial Roadway, and as such is intended to carry truck volumes • Kenilworth Access just reconstructed with design fully intended to accommodate trucks • Large trucks avoid the Access due to the hairpin curve • Over 60% of heavy vehicles using the escarpment crossing are exempted under the Traffic By- law, and would legally remain, even if exempted • The collision history of the Access, despite the tight curve geometrics, is reasonable and not a cause to remove the section from the system • Travel time and distance for alternate route via Red Hill Valley Parkway are excessive • Kenilworth Access provides important Link Across Significant Natural Barrier (Level 1 Analysis)
Proposed Truck Route Status Full Time Part-Time Specified User Not Designated
6.4.3.8 Kenilworth Avenue Street Name: Kenilworth Avenue (North of Main Street)
Extent From: Main Street To: Beach Road
Current Truck Route Status Full Time Part-Time Specified User Not Designated
Public Stakeholder Input/Comments: • Requests have been made by Councillors and the BIA to remove all five parallel links, Sherman Avenue, Gage Avenue, Ottawa Street, Kenilworth Avenue and Parkdale Avenue, from the truck route network • Hamilton Police Service have indicated that at least a minimum density of north-south connecting links is required in this area to support truck route enforcement, meaning that two adjacent major links could not be deleted simultaneously • There is a low bridge on Kenilworth North that causes clearance and collision concerns • Hamilton Chamber of Commerce further requested that arterial roads remain open and accessible north of Barton St. in support of industrial parks.
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Data Regarding Segment: • 2004-2008 commercial ADT: • Sherman Avenue (Main-Burlington): 172 • Gage Avenue (Lawrence -Barton): 192 • Ottawa Street (Lawrence-Burlington): 145 • Kenilworth Avenue (Kenilworth TC-Burlington): 916 • Parkdale Avenue (King-Brampton): 478 • Total truck collisions 2004-2008: • Sherman Avenue (Main-Burlington): 7 (Rate: 12.6) • Gage Avenue (Lawrence -Barton): 6 (Rate: 1.17) • Ottawa Street (Lawrence-Burlington): 16 (Rate: 23.62) • Kenilworth Avenue (Kenilworth TC-Burlington): 16 (Rate: 3.5) • Parkdale Avenue (King-Brampton): 14 (Rate: 6.93) • Hamilton Road Classification Report identifies Kenilworth Ave./Kenilworth Access as Major Urban Arterial Roads.
Impacts of Change: • All north-south links currently serve significant volumes of truck traffic, and removal of any of them would result in truck traffic being shifted to the adjacent roadways. • Removing Kenilworth Avenue would move significant traffic to Ottawa Street, which is contrary to the specific comment from the Ottawa Street BIA about reducing the through truck traffic from their area.
Recommendation/Justification: • Evaluated on basis of need, escarpment crossing, volumes, road condition, and safety record. • Removal would redistribute significant additional volumes to adjacent links (e.g., Ottawa St.) • Removal would force traffic from the east end of the BIA to drive the length of the BIA to access the truck route system. • Kenilworth Avenue provides important Link to Hamilton Port (Level 1 Analysis) • Kenilworth Avenue be designated as Major Urban Arterial Roadways, and as such are intended to carry truck volumes.
Proposed Truck Route Status Full Time Part-Time Specified User Not Designated
6.4.3.9 Millgrove Side Road Street Name: Millgrove Side Road
Extent From: Highway 6 To: Highway 5
Street Name: Concession 5 West
Extent From: Brock Road To: Highway 6
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Current Truck Route Status Full Time Part-Time Specified User Not Designated
Public Stakeholder Input/Comments: • Local residents have indicated concerns related to truck traffic within the community of Millgrove, particularly on the portion of Millgrove Side Road, north of Millgrove Road. • Both local and cut-through traffic have been identified as concerns, due to minimal setbacks and lack of pedestrian facilities. • The request has been to remove Millgrove Side Road (all or part north of Conc.5) and Concession 5 (Millgrove Road) from Highway 6 to Brock Road from the Truck Route Network. • The traffic signal at the intersection of Millgrove Side Road and Highway 6 is a major draw for truck traffic, since it provides safer, faster access to and across the highway. • Can be considered for removal on basis of proximity to higher order routes (Highway 5 and Highway 6). • Installation of traffic signals at the intersection of Highway 97 and Highway 6 may reduce need for access to Millgrove Side Road signal (MTO Highway 6 Safety Study). • Currently, Millgrove Side Road between Millgrove Road (Concession 5W) and Highway 6 is only a truck route in the northbound direction. It was suggested that the road could be upgraded and then converted to a two-way truck route to avoid confusion and concentrate movements at the Highway 6 signalized intersection.
Data Regarding Segment: • 2004-2008 commercial ADT: • Brock (Millgrove-Highway 5): 60 - 454 • Millgrove Side Rd (Highway 5-Highway6 ): 34 • Millgrove Rd (Brock-Highway 6): 47 • Total truck collisions 2004-2008: • Brock (Millgrove –Highway 5): 2 (Rate: 0.65) • Millgrove Side Rd (Highway 5-Highway 6): 1 (Rate: 3.99) • Millgrove Rd (Brock-Highway 6): 0 • Speed and Classification Counts: Millgrove Side Road north of Concession 5 West – 24 Hours: • 2431 Total Vehicles • 151 Trucks (6.2%) • 17 Trucks Class 8 or higher – Tractor Trailers (0.7%) • Speed and Classification Counts: Millgrove Side Road south of Concession 5 West – 24 Hours: • 2070 Total Vehicles • 107 Trucks (5.2%) • 77 Trucks Class 8 or higher – Tractor Trailers (3.7%) • Speed and Classification Counts: Concession 5W east of Millgrove Side Road – 24 Hours: • 2378 Total Vehicles • 218 Trucks (9.2%) • 47 Trucks Class 8 or higher – Tractor Trailers (2.0%) • Hamilton Road Classification Report identifies both Millgrove Side Road and Concession 5 West as Rural Arterial Roads • Level 1 Criteria: Link to Provincial Highway
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Impacts of Change: • Removal of the links would likely shift some traffic to Highways 5/6, which are higher order, preferred truck routes, as well as onto Brock Road and Safari Road, which have less viable access onto Highway 6. • Truck volumes on Millgrove Side Road are minimal, but are higher than Brock Road, north of Concession 5. Similarly with Concession 5 versus Safari Road. • Brock Road has a better safety rate, but Millgrove Side Road has only had one truck collision in five years.
Recommendation/Justification: • Recommended for removal based on availability of alternative routes.
Proposed Truck Route Status Full Time Part-Time Specified User Not Designated
6.4.3.10 Nebo Road Street Name: Nebo Road
Extent From: Rymal Road To: Twenty Road
Current Truck Route Status Full Time Part-Time Specified User Not Designated
Public Stakeholder Input/Comments: • Main roadway through predominantly employment/industrial lands located north of Twenty Road • Residents expressed concerns regarding impacts to pedestrian and bicycle traffic south of Dickenson Road
Data Regarding Segment: • Level 1 Criteria: Link to Provincial Highway, Link to Employment Area • Nebo Road – 7 Hour Counts – South of Rymal • Northbound – 377 Trucks (22.4%) • Southbound – 392 (23.8%) • Dartnall Road Extension planned for 2010-11. Will curve around to meet Nebo, north of Dickenson.
Impacts of Change: • Considering large number of commercial developments adjacent to Nebo Road, it is likely that the majority of truck trips on Nebo Road currently are local deliveries. Consequently, it is probable that the inclusion of Nebo Road will not drastically increase truck traffic north of Twenty Road. • Some developments coming on line shortly.
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• Connecting to Dartnall Road extension means that there would be a continuous loop, no dead- end.
Recommendation/Justification: • This section of Nebo Road is recommended for inclusion as soon as the Dartnall Road extension is completed.
Proposed Truck Route Status Full Time Part-Time Specified User Not Designated
Street Name: Nebo Road
Extent From: Twenty Road To: White Church Road
Street Name: Dickenson Road
Extent From: Nebo Road To: Highway 6
Current Truck Route Status Full Time Part-Time Specified User Not Designated
Public Stakeholder Input/Comments: • Residents expressed concerns regarding suitability of existing roadway condition and impacts to pedestrian and bicycle traffic on Nebo, south of Dickenson Road and on Dickenson Road • Dickenson may eventually be required to provide a connection between developing employment lands and Highway 6/Airport employment area • Nebo provides the only North – South connection between Rymal and White Church Road from Hwy #56 to Upper James Street
Data Regarding Segment: • Level 1 Criteria: Link to Provincial Highway, Link to Employment Area • Nebo Road – 7 Hour Counts – South of Rymal • Northbound – 377 Trucks (22.4%) • Southbound – 392 (23.8%)
Impacts of Change: • Inclusion of Dickenson Road from Highway 6 to Nebo Road will divert some East – West trips from Rymal Road and expected increase in truck traffic
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Recommendation/Justification: • This section of Nebo Road, and Dickenson Road are not recommended for inclusion into the truck route system at this time • Further studies are recommended to establish truck routes in the area bounded by Rymal Road, White Church Road , Hwy. #56 and Upper James Street pending roadway improvements, and subject to development
Proposed Truck Route Status Full Time Part-Time Specified User Not Designated
6.4.3.11 Ottawa Street Street Name: Ottawa Street
Extent From: Lawrence Road To: Barton Street
Current Truck Route Status Full Time Part-Time Specified User Not Designated
Public Stakeholder Input/Comments: • Requests have been made by Councillors and the BIA to remove all five parallel links, Sherman Avenue, Gage Avenue, Ottawa Street, Kenilworth Avenue and Parkdale Avenue, from the truck route network • Hamilton Police Service have indicated that at least a minimum density of north-south connecting links is required in this area to support truck route enforcement, meaning that two adjacent major links could not be deleted simultaneously • Gage Avenue and the connection to Lawrence Road are a logical deletion given the relatively low volumes and significant residential boundary length – this means that Sherman Avenue and Ottawa Street should remain in the system for effective enforcement • Hamilton Chamber of Commerce requested that arterial roads remain open and accessible north of Barton Street in support of industrial parks.
Data Regarding Segment: • 2004-2008 commercial ADT: • Sherman Avenue (Main-Burlington): 172 • Gage Avenue (Lawrence -Barton): 192 • Ottawa Street (Lawrence-Burlington): 145 • Kenilworth Avenue (Main -Burlington): 916 • Parkdale Avenue (King-Brampton): 478 • Total truck collisions 2004-2008: • Sherman Avenue (Main-Burlington): 7 (Rate: 12.6) • Gage Avenue (Lawrence -Barton): 6 (Rate: 1.17) • Ottawa Street (Lawrence-Burlington): 16 (Rate: 23.62) • Kenilworth Avenue (Kenilworth TC-Burlington): 16 (Rate: 3.5) • Parkdale Avenue (King-Brampton): 14 (Rate: 6.93) • Hamilton Road Classification Report identifies Ottawa Street as:
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• Minor Arterial Road from Burlington Street to Barton Street. • Major Urban Arterial from Barton Street to Main Street. • Minor Arterial Road from Main Street. to King Street. • Collector Road from King Street to Lawrence Avenue. • Level 1 Criteria: Link to Employment Area, Link to Port
Impacts of Change: • All north-south links currently serve significant volumes of truck traffic, and removal of any of them would result in truck traffic being shifted to the adjacent roadways. • Removal of Ottawa Street, in conjunction with removal of Gage Avenue would create circuitous truck routing for north-south truck traffic, requiring long distance trips to the next available north- south connection. It would create an enforcement issue, as well. • Removal of Ottawa Street, as an alternative to the removal of Gage Avenue / Laurence Road, would not impact as many residential units, but would displace truck traffic to Kenilworth Avenue, a very similar shopping district.
Recommendation/Justification: • Most sections of Ottawa Street have been designated as either Minor Arterial or Major Urban Arterial roadways, and as such should be designated for truck traffic (Level 1 analysis) • Recommended for retention based on removal of adjacent truck route (Gage Avenue). It is not feasible to remove two adjacent north-south arterial routes in the interest of enforceability, distribution of truck traffic and a minimum density of Truck Route Network. • The section of Ottawa Street between Lawrence Road and King Street would have to be removed in conjunction with the removals of Gage Avenue and Lawrence Road to avoid creating a dead end.
Proposed Truck Route Status Full Time Part-Time Specified User Not Designated
6.4.3.12 Parkside Drive Street Name: Parkside Drive
Extent From: Highway 6 To: Evans Road
Current Truck Route Status Full Time Part-Time Specified User Not Designated
Public Stakeholder Input/Comments: • Parkside Drive provides east-west connection to Highway 6 for Waterdown. • Signalized at Highway 6. • Can be used with Evans Road to by-pass Highway 5 through village core. • Predominately residential with direct access. • Waterdown/Aldershot Transportation Master Plan - East-West Corridor is undergoing Phases 3
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and 4 of a Class Environmental Assessment.
Data Regarding Segment: • Hamilton Road Classification Report identifies Parkside Drive as a Rural Arterial Road; proposes E-W Corridor as Rural Arterial Road • Level 1 Criteria: Link to Provincial Highway • Collision history indicates 1 truck collision in 5 years (2004-2008)
Impacts of Change: • Pending completion of E-W Corridor Environmental Assessment, redistribution of majority of truck volumes from Parkside Drive/Evans Road to E-W Corridor.
Recommendation/Justification: • The status of Parkside Drive and Evans Road may be reconsidered depending on route and once E-W Corridor is completed, but should remain until then.
Proposed Truck Route Status Full Time Part-Time Specified User Not Designated
6.4.3.13 White Church Road/Binbrook Road Street Name: White Church Road/Binbrook Road
Extent From: Upper James Street To: Highway 56
Current Truck Route Status Full Time Part-Time Specified User Not Designated
Public Stakeholder Input/Comments about White Church/Binbrook Road: • Currently a designated truck route for specified users only; questionable whether this is a sustainable assumption • Provides a major connection to Niagara truck route (Regional Road 65) – provides important short – to mid- route connection • Facilitates goods movement from employment lands to/from airport • Limited alternative routes available east-west across the mountain from Highway 6 to Highway 56. • Required to maintain appropriate density of truck route network • Roundabout located in Binbrook. • Should be selected as either „Full-Time‟ or „Part-Time‟, rather than „Specified Users‟. • Consider designations subject to improvement. • Residents expressed concerns regarding suitability of existing roadway condition and geometrics in regards to addition of truck traffic.
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• Increasing residential development bounding this road segment
Data Regarding Segment: • Segment from Highway 56 to Highway 6 was a truck route prior to 2000. • Truck volumes in 1999 were about 175 trucks per day, total • Typical volumes in 2005-9 are about 120-130 trucks at Highway 56 in 7 hours, or about 200-240 per day. • Recent truck observations found of 60 trucks identified from 8:00 AM to 4:00 PM – 16 were exempt under specified users by-law, 44 were not exempt • Hamilton Road Classification Report identifies White Church Road as a Rural Arterial Road • Level 1 Criteria: Link to Employment Area, Link to Provincial Highway, Link to Airport, Link to Adjacent Municipality (if Tyneside Road were added at a later date) • Collision history indicates 6 truck collisions in 5 years (2004-2008) for entire length from Westbrook Road to Highway 6 • Collision rate now among the lowest of truck routes considered in the study
Impacts of Change: • Provision of link from Highway 56 to Highway 6, required minimum density of network. • Prepares for development of airport lands with obvious route to markets in Regional Niagara. • Minimal expected increase in truck traffic on White Church Road, since majority of truck traffic is non-exempt already and volumes exceed those of 1999 when the probation was implemented. • By removing ambiguity about status of road as truck route, it can be put into capital budget process or coordinated with development for consideration of upgrades to accommodate pedestrians and cyclists. • Features such as the roundabouts help to manage traffic in the more residential areas • Minimal safety impact, since the rate of truck collisions (based on truck travel and collision numbers) is very reasonable.
Recommendation/Justification: • Recommended for inclusion in Truck Route system.
Proposed Truck Route Status Full Time Part-Time Specified User Not Designated
6.4.3.14 Wilson Street (Ancaster) Street Name: Wilson Street (Ancaster)
Extent From: Rousseaux Street To: Fiddler‟s Green Road
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Current Truck Route Status Full Time Part-Time Specified User Not Designated
Public Stakeholder Input/Comments: • Ancaster BIA has requested that the segment be removed from the truck route network between Rousseaux Street and Fiddler's Green Road. • Considerations are pedestrian facilities, pedestrian crossing opportunities and impacts on business. • Hamilton Chamber of Commerce recommends that Wilson Street remain a truck route and accessible from both the east and west ends of the village core. The Chamber also suggests that the Transportation Master Plan being developed for the former Town of Ancaster may provide other measures to deal with current truck volumes on Wilson Street. • The Ancaster Transportation Master Plan study is on hold, pending discussions with the MTO over adding a new ramp connection to Highway 403.
Data Regarding Segment: • 24 Hour Equivalent Counts: 230 Trucks Westbound, 210 Trucks Eastbound on Wilson Street east of Highway 403 • Hamilton Road Classification Report identifies Wilson Street as a Major Urban Arterial Road • Level 1 Criteria: Link to Provincial Highway, Sub-Regional Centre • Much of core has parking between the sidewalk and travel lanes • Collision history indicates 15 truck collisions in 5 years (2004-2008)
Impacts of Removal: • Trucks from Highway 403 cannot be prohibited from exiting at Wilson Street and at Fiddler‟s Green Road interchanges, but would be forced to turn at the Wilson/Fiddler‟s intersection. This would likely cause enforcement issues. • Access to the eastern part of the BIA for local deliveries to/from Highway 403 Brantford will have to be from the Aberdeen Street exit, since there is no movement provided at the Lincoln Alexander Parkway/Highway 403 interchange. • BIA deliveries would be split: west end only to/from Fiddler‟s; east end only to/from Rosseaux • Access for deliveries to Ancaster from West Hamilton/Dundas will be much more circuitous, increasing business cost. • A significant volume of truck traffic currently uses this segment of the truck route network.
Recommendation/Justification: • Recommended for retention in Truck Route Network due to lack of alternative routes through the Ancaster area. • Removal of route may only partially reduce truck traffic in the area due to proportion of trucks making local deliveries. • Inability to restrict truck traffic from Highway 403 and current ramp configurations make potential change ineffective, due to likely enforcement demands.
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Proposed Truck Route Status Full Time Part-Time Specified User Not Designated
Based upon the results of the individual link analysis, the Alternative 3 truck route network is illustrated in Exhibit 6-15 and Exhibit 6-16.
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Exhibit 6-15: Alternative 3 Truck Route Network
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Exhibit 6-16: Alternative 3 Truck Route Network (Zoom)
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7. MANAGING THE TRUCK ROUTE NETWORK
The truck route network developed through this is not intended as a static entity; rather, it is expected to evolve and expand, as dictated by development and/or redevelopment within the City. This includes that construction of new road infrastructure. The consideration of truck traffic should be integral to the planning process for any new roads within the City of Hamilton.
The criteria that constitute the Level 1 Analysis should serve as a simple guide for determining if any new road should be included in the City‟s truck route network. Furthermore, the potential to remove existing links from the truck route network should also be considered during the planning of new roads. Given the relative ease with which mitigating measures to accommodate truck traffic can typically be incorporated into new construction, as compared to existing roadways, new roads should always be considered as potential truck routes, until sufficient justification for the contrary is provided.
With the understanding that the truck route network developed through this study could result in some unintended/unanticipated issues, the following sections identify several tools that can be used to manage a dynamic truck route network. In most instances, recommended policies for the application of these tools are also provided. 7.1 Time-of-Day/Time-of-Year Restrictions
Although time-of-day and time-of-year restriction on truck movements are similar, in that they both deviate from the typical full-time permissive truck route approach, they differ significantly in why they are used.
7.1.1 TIME-OF-DAY RESTRICTIONS
Time-of-day restrictions or part-time truck routes have occasionally been used to create a balance between recognized goods movement corridors and less compatible land uses (e.g., residential areas, hospitals, etc.). Currently, all part-time truck routes in the City of Hamilton are available between 7:00 AM and 7:00 PM, which reflects typical business hours. Through this study, the continued use of part-time truck routes has come into question, due to issues of equitableness and enforceability. The recommended policy regarding the use of part-time truck routes is as follows:
Existing part-time truck routes should be maintained. New part-time truck routes should only be added where adding a new full-time truck route would result in truck route discontinuities during the 7:00 PM – 7:00 AM period.
7.1.2 TIME-OF-YEAR RESTRICTIONS
Time-of-year restrictions (i.e., seasonal load restrictions or reduced load periods) are used to protect the structural integrity of road infrastructure during the spring months, by reducing the allowable load limits for heavy trucks. Given that these restrictions relate directly to the construction of the road infrastructure, reduced load periods are necessary to the sustained viability of the road network. The need for reduced load periods is dictated by the design and construction of the individual road sections to which they apply, and until such a time that the restrictions are not required, due to road infrastructure improvements, they should be retained. Existing reduced load periods are indicated in Section 58 of Part 5 – Load Related Restriction of the City of Hamilton By- law.
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7.2 Engine Brake Signage
As part of this study, the issue of engine brakes, sometimes known as compression brakes or Jake Brakes®, was addressed. Overwhelmingly, issues raised with respect to the use of engine brakes relate to noise. In the past, several requests have been made by members of the public to have signs posted discouraging the use of engine brakes within areas of the City of Hamilton, and in a few isolated instances those requests were granted. There are arguments both for and against the continued use of engine brake signage, and some of the more relevant points of those arguments are discussed below.
All information provided by the manufacturers and truck operators suggests that, when properly maintained, engine brakes on large trucks do not produce any more noise than the same vehicle travelling uphill. However, it is known that poorly maintained or intentionally modified muffler systems can result in engine brakes that can be quite loud, which can have a negative impact on quality of life. Posting signs that discourage or prohibit the use of engine brakes is one way of mitigating the noise impacts associated with the use of engine brakes. Sample signs are shown in Exhibit 7-1.
Exhibit 7-1: Engine Brake Signs5
However, given that engine brakes are a supplemental safety device, prohibiting their use has the potential to create some serious liability issues, in the event of a collision involving a heavy truck in an area where the use of engine brakes is prohibited. Additionally, the enforcement of engine brake prohibitions is extremely challenging, because it involves both a moving violation and a noise by- law violation. Given the City‟s current policy on these types of violations, it would require both a Police Officer and a By-law Officer to enforce an engine brake prohibition. Due to the above issues the use of engine brake prohibitions is not recommended.
In the absence of engine brake prohibitions, signs could still be used to discourage their use in residential areas. The legal and enforcement concerns associated with this type of signage are less than those related to prohibitions. Nonetheless, there are still some issues related to the widespread use of any type of signage related to engine brakes. Namely, sign pollution (i.e., the counterproductive effects of over-signing) and the costs associated with the installation and maintenance of the signs.
Given the inevitability of more requests for engine brake signs being made to the City, it is clear that a formal policy on their use is required. The recommended policy is as follows:
Installation of signage that discourages the use of engine brakes is supported, subject to the following conditions:
5 Transportation Association of Canada Traffic Operations and Management Standing Committee, Draft Interim Report – Project No. 257 – Engine Brake Sign, April 2007.
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High volume of truck traffic (based on traffic volume data collected within two years of date of request for signage);
Proven history of complaints at/within the same area;
Vertical alignment – downhill grade of less than 3%;
Frequent stopping location – traffic control device(e.g., stop sign or traffic signals), freeway exit, sharp curve, etc.; and
Close proximity to residences. 7.3 Long Combination Vehicles
In Canada, any combination of vehicles over 25 metres overall length is considered to be a Long Combination Vehicle (LCV). In Ontario, LCVs are made up of a tractor pulling two full-length semi- trailers up to 40 metres in overall length. In the summer of 2009, Ontario initiated a one-year pilot program to allow 100 LCVs to operation in the province. LCVs are restricted to predetermined highways and approved access points close to highway ramps. Additionally, all off-highway routes require an engineering and safety assessment, as well as municipal consent.
Given the unique geometric requirements associated with LCVs, the truck route network developed through this study is not intended to accommodate their unrestricted operations (i.e., the truck route designation does not negate the need for the provincially-mandated engineering and safety assessment).
Additionally, the City has indicated that until such a time as a business operating within the City of Hamilton requests consent to use LCVs, the City has no interest or intent to accommodate such vehicles on any City roadway (including the Linc and RHVP). Therefore, no further action related to LCVs is recommended at this time. 7.4 Restrictive Signage
The primary signing system currently used for the truck route network in the City of Hamilton is a permissive system. This means that the routes which are truck routes are clearly defined. This system requires far less signing than the alternative, which would be a restrictive system, in which all routes that are not truck routes have to be signed. In addition, the current system provides better guidance than do restrictive systems, in that signs may be erected upstream of intersections, letting heavy vehicle operators know which turning movements are permitted before they reach the decision point.
Generally, it is preferable to adhere to a single type of signage (i.e., permissive or restrictive), to minimize the potential for confusion and support consistent enforcement. However, through this study, it has been recognized that there are instances in which additional signage, in the form of restrictive signage, may be required to reinforce areas with poor compliance or areas in which drivers maybe confused. This approach is consistent with the direction outlined in the Ontario Traffic Manual – Book 5. The recommended policy regarding the use of restrictive signage is as follows:
Existing restrictive signage is to be grandfathered (i.e., maintained at all locations where it exists currently), until such time as the signs need to be replaced. At that time the need to retain the signs should be reviewed according to the criteria outlined below:
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City of Hamilton staff or Hamilton Police Service to confirm history of complaints for the area;
Truck volume data (particularly illegal movement data) to be referenced or collected to verify issue;
If there is a demonstrated concern or issue, install additional permissive signage to reinforce the designated routes;
If there continues to be a demonstrated need, target area for police enforcement (City of Hamilton staff to liaise with Hamilton Police Service to monitor results of targeted enforcement); and
If additional, redundant permissive signage and/or police enforcement do not significantly improve the situation, implement restrictive signage.
Installation of restrictive signage should be limited, but new restrictive signage may be installed on roads that do not form part of the truck route network, subject to the criteria and procedure described above. 7.5 “Specified Users” Classification
The current By-law allows for truck route links with a “Specified Users” classification, whereby certain links can only legally be used for through travel by a specified set of operators, as named in the By-law. The intent of this classification is to restrict the number of operators that can use the link, other than for local deliveries, thereby reducing truck traffic volumes. However, it is very difficult to enforce the classification, and it is contrary to the goal of providing consistent application of the truck route designation. Therefore, it is recommended that the “Specified Users” classification be eliminated, and all references to it be removed from the By-law. Links that currently have this classification should either be upgraded to an “All Users” classification or removed from the network. Based on this recommended approach, all operators would have the same rights to use all truck routes in the City of Hamilton. 7.6 Enforcement
Currently, the sole responsibility for proactive enforcement of Traffic By-law 01-215 respecting trucks using non-truck routes lies with the Hamilton Police service. In fact, the Hamilton Police Service is responsible for enforcing all moving violations within the City limits. In 2009, the potential for reinstating a joint-enforcement strategy, involving the Hamilton Police Service and Hamilton By- law Enforcement Officers was explored. Ultimately, it was determined that, based on past experience, joint-enforcement of moving violations was not viable over the long-term, because policing priorities often did not allow Police Officers to attend pre-scheduled enforcement initiatives, resulting in an inefficient use of By-law Enforcement Officers and lost revenues to the City.
Given the justification cited above and the potential safety risks associated with stopping heavy trucks within the City of Hamilton, it is recommended that the task of enforcing the truck route network (i.e., Traffic By-law 01-215) be left to the Hamilton Police Service.
With the above in mind, minimizing the need for enforcement was a key consideration in developing the truck route network. While the Hamilton Police Service may provide a minimal level of enforcement, truck route violations are understandably not a high priority for service. That is why one of the guiding principles of the study was to attempt to develop a network that was logical to the trucking industry, such that the routings provided would not require high levels of police
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enforcement to establish and maintain compliance. If the truck route network is not sufficiently dense, it becomes very difficult to determine where the shortest distance to and from a truck route is, and it becomes almost impossible for the police to enforce routings. 7.7 Education
The trucking industry is the primary audience for educational and informational materials related to the truck route network and its use. Informational signs explaining the City‟s permissive truck route system should be located at all truck route links to adjacent municipalities, oriented for traffic bound for the City of Hamilton. Additionally, a map of the truck route network and a copy of the applicable sections of the By-law should be posted on the City of Hamilton website, in an easily accessible and searchable location. Hard copies of the truck route network map and the applicable sections of the By-lay should be made available by request. 8. CONCLUSIONS
Based on all of the efforts that went into the Hamilton Truck Route Master Plan Study (e.g., public and other stakeholder consultation, site visits and data collection, network evaluation, individual link assessments, etc.), several conclusions were reached:
Changes are required to the truck route network to account for changes in land use that have occurred over time. Some new links should be added to fill gaps in the network and provide better connectivity across the City, and several links should be removed because they have become redundant or impractical. All of the recommended changes to the truck route network are presented in Section 9.1;
The stakeholder consultation conducted for this study confirmed that there is a very negative connotation associated with truck routes, and it is a widely held misconception that simply removing truck routes from the network will eliminate truck traffic from those roads. By far, the most common request that resulted from the public consultation was to remove links from the truck route network. The most challenging component of the study was trying to balance the needs of industry with those of the general public;
With respect to goods movement, the recommended truck route network was designed to address the current needs of the City of Hamilton. As the City develops and evolves, the truck route network will have to be updated to keep pace (e.g., creating a more direct connection between the Airport and North Glanbrook Business Park/RHVP due to the current lack of truck access opportunities from the northeast to the Airport, south of the Lincoln Alexander Parkway). The evaluation methodology presented in Section 4 should serve as a basis for future updates to the network; and
In addition to regularly updating the truck route network to ensure that it reflects the needs of the City of Hamilton, several tools have been recommended to help manage the network: Time-of-day restrictions and reduced load periods; Engine brake signage; Restrictive signage; Enforcement; and Education.
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The management tools listed above should be used as outlined in Section 7 of this report, and they should be applied consistently throughout the City of Hamilton and over time. 9. RECOMMENDATIONS
Also based on the considerable efforts of the Hamilton Truck Route Master Plan Study, and following from the conclusions presented above, a series for recommendations for the truck route network, its immediate update and long-term evolution, are discussed below. 9.1 Recommended Truck Route Network
The recommended truck route network (the Alternative 3 Network) is that which resulted from application of the evaluation methodology outlined in Section 4 of this report. Maps illustrating the recommended truck route network are provided in Exhibit 6-15 and Exhibit 6-16.
A description of changes (e.g., additions and deletions) to the truck route network, relative to the existing truck route network, is provided in Exhibit 9-1 and Exhibit 9-2.
Exhibit 9-1: Recommended Additions and Upgrades
Road Extents Ward Justification Glanbrook/Airport White Highway 6 to Highway 56 11 Currently specified users only. Church Would fill a large gap in the network Road between Hamilton Airport and (Upgrade Highway 56/Binbrook Employment to All Lands. Users) Pritchard Stone Church Road to Rymal Road 9 Pritchard Road is a superior link to Road Upper Mount Albion, with far less adjacent residential development. Downtown Core Wentworth Cannon St to Barton St. 1 Upgraded in conjunction with Avenue restriction of Barton St. Forms (Upgrade adjacent north-south pair with to Full- Sanford Avenue, which is full-time. Time) Parkways Corridor Garth Mohawk Road to Rymal Road 8 Arterial Roadway with 'Linc' access, Street Part-time status due to part-time (Part-Time) status of Mohawk Rd. and residential land uses south of the 'Linc.' Glanbrook/Airport Fiddlers Garner Road to Carluke Road 12 Currently “Specified Users” Green Classification, which is being Road eliminated. Link is required to (Upgrade connect to major local industry. to All Users)
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Exhibit 9-2: Recommended Removals
Road Extents Ward Justification East Flamborough/Waterdown Campbellville Centre Road to 15 Halton Region connection removed. Truck routes Road Municipal should not dead end. Boundary Millgrove Highway 6 to 15 There are few truck generators on Millgrove Sideroad Highway 5 Sideroad. Highway 6 is a preferable alternative. There is a lack of pedestrian facilities. Millgrove Road Brock Road to 15 There are a number of residences with minimal (Concession 5 Highway 6 setbacks within the community of Millgrove. There W) is a lack of pedestrian facilities. West Hamilton/Dundas York Road Olympic Drive 13 Olympic Drive is a superior alternative with better to Cootes Drive geometry, cross-section, fewer residential frontages, and existing truck generators. West Flamborough Jerseyville Wilson Street to 12/14 Jerseyville Road has challenging geometry, many Road Highway 52 residential and community frontages, and it serves few truck generators, aside from agriculture near Highway 52. Also parallel to 403. Glanbrook/Airport Airport Fiddlers Green 11/12 Currently 'Specified Users' Classification, parallel Road/Butter Road to Upper to Highway 6 Bypass. Road James Street Upper Mount Rymal Road to 9 Pritchard Road is a superior alternative with fewer Albion Road Stone Church residential frontages, and existing truck generators. Road Stone Church Upper Mount 9 Creates discontinuous network with Upper Mount Road Albion Road to Albion Road removal RHVP Ramps Ridge Road Centennial 11 The geometry and cross-section of Ridge Road Parkway to west of Tapleytown Road are not accommodating 11th Road East to trucks, and the removal of Tapleytown Road from the truck route network determines the eastern extents of the Ridge Road removal. Tapleytown Mud Street to 11 Creates discontinuous network with Ridge Road Road Ridge Road removal Stoney Creek Nash Road King Street to 5 Nash Road is located between the RHVP and Barton Road Centennial Parkway. Between King Street and Barton Street there are mostly residential frontages and all truck generators could be served by shortest path from King, Queenston Road or Barton. Parkways Corridor Stone Church Upper James 7 Changing nature of adjacent land uses Road St. to Upper Gage Ave.
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Garth Street Mohawk St to 8 Residential Area with suitable alternative Fennell Ave Fennell Upper James 8 Residential Area with suitable alternative Avenue St to Garth Street East Hamilton/Portlands Parkdale King Street to 4/5 Extents of removal revised from Alternative 2. Avenue Main Street Almost exclusively residential land uses south of Main Street. Lawrence Gage Ave to 3/4/5 Residential Area, Proximity to King Street, Few Road King St/RHVP truck generators. Ramps Gage Avenue Lawrence Road 3 Restrict north/south links from Port Area to Barton Street Ottawa Street Lawrence Road 3/4 Removed in conjunction with removal of Lawrence to King Street Rd. Cochrane Lawrence Road 3/4 Removed in conjunction with removal of Lawrence Road to King Street Rd. Barton Street Queen Street to 1/2/3 Reduce impacts on Barton BIA, residences, while Wentworth maintaining the link in the area with more truck Street generators Garfield Limits 3 Short dead end link. Shortest path rules govern. Avenue Downtown Core King Street Queen Street to 1 Request of BIA. Eliminate through trips from King Bay Street Street in central business district. Hess Street Barton St to 1 Removed in conjunction with removal of Barton St. Stuart Street John Street Cannon St to 1 Removed in conjunction with removal of Barton St. Barton St. Caroline Street Barton St to 1 Removed in conjunction with removal of Barton St. Stuart Street
Revised versions of the relevant sections of the City of Hamilton By-law and applicable Schedules have been prepared that reflect the changes to the truck route network, as recommended herein, and they are available in Appendix E. 9.2 Capital Roadway Improvements
In general this study has not recommended specific capital roadway improvements related to any links that are currently part of the truck route network, nor have specific capital improvements been identified for links that would be added to the tuck route network through the recommended changes described in Section 9.1. Rather, it is intended that the status of a link, as part of the truck route network, serve as justification for prioritizing capital roadway improvements recommended by or being considered as part of other planning and engineering studies.
9.2.1 NEW ROADS
As previously noted in this report, it should be assumed that new (arterial) roads will become links in the truck route network, unless reasonable justification can be provided for their exclusion. The
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primary reason for this recommendation is that it is typically much easier (and less costly) to include measures needed to accommodate trucks in new construction than it is to apply them as mitigating measures on existing roads. This approach also provides an opportunity to address issues with the existing truck route network through the planning and design of new roads (e.g., removing the truck route designation from links that are parallel to new roads and less suited to accommodate tuck traffic).
9.2.2 EXISTING ROADS
Some existing roads may require improvements to better accommodate trucks, as well as other road users (e.g., pedestrians and cyclists); however, truck route status alone is not, in most cases, sufficient justification for road improvements.
White Church Road/Binbrook Road is part of the existing truck route network with a “Specified Users” classification; it is being recommended through this study that the link be upgraded to an “All Users” truck route. The “Specified Users” classification is being eliminated through the recommended changes to the By-law. Given that this change of classification could result in additional truck traffic on the road, improvements to the infrastructure might be justified. The types of improvements that might be applied to make this rural arterial road more accommodating to road users are discussed in the Road Classification and Right-of Way Width Project report and the Rural Road Standards Policy Paper (2005), a brief synopsis of the document is provided in Section 2.3 of this report.
Additionally, when existing roads that are part of the truck route network are being reconstructed or improved (e.g., through utilities upgrades/repairs) opportunities should be looked at to better accommodate all road uses (e.g., sidewalks, bike lanes, traffic control signals, etc.). 9.3 Long-Term Management
Several recommended actions and policies for the long-term management of the truck route network are provided below:
Existing part-time truck routes should be maintained. New part-time truck routes should only be added where adding a new full-time truck route would result in truck route discontinuities during the 7:00 PM – 7:00 AM period;
Reduced load periods is dictated by the design and construction of the individual road sections to which they apply, and until such a time that the restrictions are not required, due to road infrastructure improvements, they should be retained;
Continue to install signage that discourages the use of engine brakes, subject to the following criteria:
High volume of truck traffic (based on traffic volume data collected within two years of date of request for signage);
Proven history of complaints at/within the same area;
Vertical alignment – downhill grade of less than 3%;
Frequent stopping location – traffic control device(e.g., stop sign or traffic signals);
Close proximity to residences; and
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Results of field investigation by City of Hamilton staff to confirm that there is a problem;
Long Combination Vehicles should be treated as oversized loads, and as such, should be subject to the Oversized Load Permits process set out in Section 55 of Part 5 – Load Related Restriction of the City of Hamilton By-law.
Existing restrictive signage is to be grandfathered (i.e., maintained at all locations where it exists currently), and new restrictive signage can be installed on roads that do not form part of the truck route network, subject to the following process:
City of Hamilton staff to confirm history of complaints for the area;
City of Hamilton staff to perform field observations (e.g., collect traffic volume and classification data);
If there is a demonstrated need, install additional permissive signage to reinforce the designated routes;
If there is a demonstrated need, area to be targeted for police enforcement (City of Hamilton staff to liaise with police to monitor results of targeted enforcement); and
If all other treatments fail to improve the situation, implement restrictive signage;
The task of enforcing the truck route network (i.e., Traffic By-law 01-215) should be left to the City of Hamilton Police Service;
The “Specified Users” classification should be eliminated, and all references to it should be removed from the By-law;
Informational signs explaining the City‟s permissive truck route system should be located at all truck route links to adjacent municipalities, oriented for traffic bound for the City of Hamilton, and a map of the applicable truck route network and a copy of the applicable sections of the By-law should always be posted on the City of Hamilton website.
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April 2010 Page 93 IBI G RO UP FINAL REPORT City of Hamilton CITY OF HAMILTON TRUCK ROUTE MASTER PLAN STUDY
APPENDIX A
PIC SUMMARY REPORTS
April 2010
City of Hamilton Truck Route Master Plan Study Public Information Centre #1
Meeting Summary
Tuesday, May 27, 2008 7:00 – 8:30 p.m. Traffic Operations Centre 1375 Upper Ottawa Street Hamilton, Ontario
September, 2008
t: 905-527-0754 f: 905-528-4179 · www.lura.ca 36 Hunter Street East - Suite 601 Hamilton, Ontario L8N 3W8, Canada
This Public Information Centre (PIC) summary report was prepared by Lura Consulting. Lura is providing third-party facilitation services as part of the City of Hamilton’s Truck Route Master Plan Study. This summary captures the key discussion points raised during the PIC. It is not intended as a verbatim transcript of comments received. If you have any questions or comments regarding the summary, please contact either:
Gary Kirchknopf, C.E.T. Jean-Louis Gaudet Senior Project Manager Consultant Traffic Planning & Community Services Lura Consulting Public Works Department Phone: 905-527-0754 OR Operations & Maintenance Division Fax: 905-528-4179 77 James Street North, Suite 320 [email protected] Phone: 905 546-2424 ext. 7217 [email protected]
PUBLIC WORKS DEPARTMENT Operations & Maintenance Division Traffic Planning & Community Services
CITY OF HAMILTON TRUCK ROUTE MASTER PLAN STUDY PUBLIC INFORMATION CENTRE #1 MEETING SUMMARY
Table of Contents
1 About the Public Information Centre...... 1 2 Format of the PIC ...... 1 3 Summary of Feedback Received ...... 1 3.1 Ideas or Aspects to include in a Truck Route Strategy ...... 1 3.2 Issues and Challenges...... 3 3.3 Opportunities ...... 3 4 Next Steps...... 4
Appendix A: Display Boards Appendix B: Comment Form
i CITY OF HAMILTON TRUCK ROUTE MASTER PLAN STUDY PUBLIC INFORMATION CENTRE #1 MEETING SUMMARY
ii CITY OF HAMILTON TRUCK ROUTE MASTER PLAN STUDY PUBLIC INFORMATION CENTRE #1 MEETING SUMMARY
1 About the Public Information Centre
The first Public Information Centre (PIC) for the City of Hamilton’s Truck Route Master Plan Study took place on Tuesday, May 27, 2008. The City hosted the PIC as an orientation for the public to the project. Specifically, the purpose of the meeting was three-fold:
1. To introduce the public to the project; 2. To discuss the desired future for the efficient movement of goods through Hamilton (i.e., the community vision); and 3. To identify current issues and opportunities.
Seventeen members of the public attended the event, which was held at the City of Hamilton Traffic Operations Centre at 1375 Upper Ottawa Street, Hamilton. Representatives from the project team (including both City staff and the consulting team), the Ward 1 council office, and Councillor David Mitchell from Ward 2 also attended the PIC.
This report provides a summary of the meeting.
2 Format of the PIC
The PIC was held in an open house format and ran from 7:00 pm to 8:30 pm. Open House participants were invited to read a series a display panels that presented an overview of the study, including the study purpose and objectives, the workplan and schedule, and contact information for the study team. A copy of the display panels is provided in Appendix A.
Participants were provided with a comment sheet to record their feedback. They were asked what they would like to see incorporated into a future truck route strategy and what they felt are the most important issues, challenges and opportunities with developing truck routes in and through Hamilton. A copy of the comment form is provided in Appendix B.
City staff and members of the project team were available to discuss the project with the PIC participants. Maps were provided for participants to note issues or areas of concern and provide route suggestions.
A total of five comment forms were submitted. This report summarizes the feedback received through the comment forms and the discussions participants had with the project team members.
3 Summary of Feedback Received
3.1 Ideas or Aspects to include in a Truck Route Strategy Suggestions for what should be included in a Truck Route strategy included:
• Banning of large trucks in downtown core, and avoid residential neighbourhoods; • Encouragement of the use of appropriate routes; • Cooperation between stakeholders, including truck drivers, citizens, and the City; • Less use of engine brakes;
1 CITY OF HAMILTON TRUCK ROUTE MASTER PLAN STUDY PUBLIC INFORMATION CENTRE #1 MEETING SUMMARY
• Improved road conditions, including good pavement; • Efficient routing and operations (e.g., a minimum number of stop lights); • “Local Delivery Only” areas; • Consideration of: o Oil depletion; o Better uses of rail transport (e.g., which containers might be better transferred by rail); o How the make-up of existing roads will stand up to truck traffic; o The quality of life for residents; o Safety issues regarding trucking through agricultural areas (e.g., animals); and • Restriction of trucks to main 2-lane or 4-lane highways
In addition to the above comments, participants also provided suggestions on where trucks should be prohibited and truck routes should be located. Suggestions on where trucking should be restricted included:
• Stone Church Road east of Upper James (cuts through residential areas between Upper James and Upper Wellington, and separates the park from residents to the North); • The downtown core (Victoria to Dundurn, and Barton to Main); • Birch Avenue (since the steel mill is closed); • Ottawa Street, between Main and Barton; • Barton Street, between Victoria and Sherman; and • Nelson Road.
One participant presented the study team with a petition that would be circulated if Stone Church Road is considered for a trucking route. The participant noted that the petition was drawn up in September 2007, but its circulation was postponed when the petitioners learned of the truck route study. The petition is currently on hold until the City decides on its plans for Stone Church Road.
Routes that were said to more appropriate for trucks included:
• Rymal Road; • Lincoln Alexander Parkway; • Red Hill Expressway; • Only use one or two streets in the downtown core, such as York and Victoria; • King Street west and Main Street West (in Ward 1); and • York and Dundurn (in Ward 1).
With respect to garbage trucks, it was suggested that they should not be using the Centennial Parkway between Queenston Road and King Street when travelling from the transfer station to the landfill. It was suggested that smaller garbage trucks either bypass the transfer station and go directly to the landfill or, if that is not feasible, travel along the Red Hill Valley Parkway and Mud Street when going between the transfer station and the landfill.
2 CITY OF HAMILTON TRUCK ROUTE MASTER PLAN STUDY PUBLIC INFORMATION CENTRE #1 MEETING SUMMARY
3.2 Issues and Challenges Noted issues and challenges included:
• Fuel consumption, air quality and pollution - longer truck routes result in more fuel consumed, and frequent delays and stops result in greater pollution; • Educating truckers on the impacts of trucking on nearby residents; • Stakeholders working cooperatively; • Safety concerns of the general public and residents who live on truck routes: o It is difficult to cross Stone Church Road East; o There is a need to consider the safety of children at home and around schools (suggestion to review pedestrian traffic fatalities); • Truck traffic nuisances e.g. noise, vibrations ( vibrations are an issue for houses on Main Street; consider the impact of trucking nuisances on schools and students who are trying to learn); • Minimizing the interference of trucking with local traffic along truck routes (e.g., the ability to exit driveways); • Encouraging the use of alternative routes; • Management of truck route traffic, in particular trucks travelling to and from the airport employment lands and when the 403 is clogged; • Affect of truck routes on school bus routes; • Road operations, including sidewalks, lights, and the width of roads; and • The large number of garbage trucks that travel from the transfer station up Centennial Parkway to the landfill.
There were also a number of comments that were specific to signage, which included:
• There is no signage at Upper James Street and Stone Church Road; • More signage prohibiting trucks (e.g., the image of the truck struck out by a red bar) is required; • Permanent signage is needed on the QEW to replace the current portable signage; and • Use destination-based truck route signage, e.g., truck route signage that indicates routes to Toronto, London, or other areas.
3.3 Opportunities Identified opportunities to help create truck routes in and through Hamilton included:
• Garbage transfer station at Kenora Avenue (allow smaller trucks to go directly to the landfill instead of transfer station); • Use of Red Hill Valley Parkway, and promotion that it is open; • People who care about their neighbourhood and who will provide input; • Access to rail that can be used to ship containers; • Local health research capabilities, which can be used to assess the impact of truck traffic on human health); • Reducing the danger posed by truck traffic on certain routes;
3 CITY OF HAMILTON TRUCK ROUTE MASTER PLAN STUDY PUBLIC INFORMATION CENTRE #1 MEETING SUMMARY
• Concentration of noise, pollution etc on appropriate routes (e.g., those with bermed sides); • Prevent fragmentation of neighbourhoods; • Encouragement of “trucker responsibility” with respect to noise and speed (e.g., reminding them to avoid the use of engine brakes); • Information on how trucks are routed in other cities (e.g., Toronto); and • Clear signage on truck routes.
4 Next Steps
The project will continue with stakeholder consultations and additional technical and policy research. The next set of PICs for this project is scheduled for June 17, 18 an 19, where the project team will present and discuss the results of the studies and review possible alternatives. Input from those PICs will be used to develop a recommended Truck Route System, which will be presented to the public in a series of PICs in September 2008.
4 CITY OF HAMILTON TRUCK ROUTE MASTER PLAN STUDY PUBLIC INFORMATION CENTRE #1 MEETING SUMMARY
APPENDIX A
Display Boards
PUBLIC INFORMATION TRUCK ROUTE MASTER PLAN STUDY CENTRE Public Information Centre No. #1 Truck Route Master Plan Study May 27, 2008
Study Area
Please sign in.
Staff from the City and consulting team will be glad to speak with you regarding your questions or comments.
We also invite you to fill out a comment sheet so that we can ensure that your ideas are recorded.
PUBLIC WORKS DEPARTMENT Operations & Maintenance Division Traffic Engineering & Operations TRUCK ROUTE MASTER Purpose of Public Information PLAN STUDY Public Information Centre No. #1 Centre May 27, 2008