Public Report
To: Development Services Committee
From: Warren Munro, HBA, RPP, Commissioner, Development Services Department
Report Number: DS-19-233
Date of Report: December 4, 2019
Date of Meeting: December 9, 2019
Subject: City Comments on the Region of Durham's Transportation System Discussion Paper
File: A-2200-0013
1.0 Purpose
The purpose of this report is to obtain Council’s approval of City comments on the Region of Durham’s Transportation System Discussion Paper (the “Discussion Paper”), which is the fifth in a series of discussion papers to be released as part of Envision Durham, the Municipal Comprehensive Review (M.C.R.) of the Durham Regional Official Plan (D.R.O.P.).
On November 18, 2019, the Development Services Committee considered Correspondence DS-19-215 and adopted the following recommendation:
“That Correspondence DS-19-215 from the Region of Durham requesting comments on the Envision Durham – Transportation System Discussion Paper be referred to staff for a report.”
The Region has requested that comments on the Discussion Paper be submitted by December 30, 2019.
A copy of the Discussion Paper can be found at www.durham.ca/EnvisionDurham and was previously provided to Council as part of the November 18, 2019 Development Services Committee agenda.
Attachment 1 contains recommended City comments on the Discussion Paper.
Attachment 2 is the Discussion Paper.
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2.0 Recommendation
That the Development Services Committee recommend to City Council:
1. That Report DS-19-233 dated December 4, 2019, be endorsed as the City’s comments on the Transportation System Discussion Paper prepared by the Region of Durham as part of Envision Durham, the Municipal Comprehensive Review of the Durham Regional Official Plan.
2. That staff be authorized to forward a copy of Report DS-19-233 dated December 4, 2019 and the related Council resolution to the Region of Durham and Durham area municipalities.
3.0 Executive Summary
On May 2, 2018, Regional Council authorized staff to proceed with Envision Durham, the Municipal Comprehensive Review of the Durham Regional Official Plan.
On February 5, 2019, the Region initiated the first stage (“Discover”) of the public engagement program for Envision Durham by launching a project web page and public opinion survey.
On March 5, 2019, the Region initiated the second stage (“Discuss”) of the public engagement program where participants were asked to provide input on various theme- based discussion papers. To date the Region of Durham has released five discussion papers on the following topics:
. Agriculture and Rural System Discussion Paper (released March 5, 2019); . Climate Change and Sustainability Discussion Paper (released May 7, 2019); . Growth Management – Urban System Discussion Paper (released June 4, 2019); . Environment and Greenlands System Discussion Paper (released September 3, 2019); and, . Transportation System Discussion Paper (released October 1, 2019).
As previously directed by Council, the City has submitted comments to the Region of Durham on the first four discussion papers related to Agriculture and Rural Systems, Climate Change and Sustainability, Growth Management and Environment and Greenlands.
The deadline to submit comments on the Transportation System Discussion Paper is December 30, 2019.
This Department recommends that the comments in this report on the Transportation System Discussion Paper be endorsed as the City comments.
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4.0 Input From Other Sources
The following have been consulted in the preparation of this report:
. Commissioner, Community Services . Oshawa Environmental Advisory Committee (O.E.A.C.) . Oshawa Accessibility Advisory Committee . Oshawa Active Transportation Advisory Committee
Previously, on June 4, 2019, O.E.A.C. adopted a recommendation (OEAC-19-32) that they be given the opportunity to provide comments on all discussion papers prepared as part of Envision Durham, the M.C.R. of the D.R.O.P.
Staff provided copies of the Discussion Paper to O.E.A.C., the Oshawa Accessibility Advisory Committee and the Oshawa Active Transportation Advisory Committee and have advised all the committees that any comments they wish to submit should be sent directly to the Region of Durham by the December 30, 2019 deadline.
5.0 Analysis
5.1 Envision Durham: The Municipal Comprehensive Review of the Durham Regional Official Plan
On May 2, 2018, Regional staff received authorization to proceed with Envision Durham, the M.C.R. of the D.R.O.P. Envision Durham is an opportunity to undertake a core review of the current Regional Official Plan and establish a progressive and forward-looking planning vision for the Region up to 2041.
On February 5, 2019, the Region of Durham initiated the first stage (“Discover”) of the public engagement program for Envision Durham by launching a project web page and public opinion survey. With the release of the first of a series of discussion papers on March 5, 2019, Regional staff launched the second stage (“Discuss”) of the engagement program, where participants are being asked to provide input on various themes presented through the discussion papers.
To date, the following five discussion papers have been released:
. Agriculture and Rural System Discussion Paper (released March 5, 2019);
. Climate Change & Sustainability Discussion Paper (released May 7, 2019);
. Growth Management – Urban System Discussion Paper (released June 4, 2019);
. Environment and Greenlands System Discussion Paper (released September 3, 2019); and,
. Transportation System Discussion Paper (released October 1, 2019).
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On May 21, 2019, in response to the Region’s request for input on the first discussion paper (the Agriculture and Rural System Discussion Paper), Council considered Report DS-19-77 dated May 1, 2019 and adopted the following recommendation:
“1. That Report DS-19-77 dated May 1, 2019, be endorsed as the City’s comments on the Agriculture and Rural System Discussion Paper prepared by the Region of Durham as part of Envision Durham, the Municipal Comprehensive Review of the Durham Regional Official Plan.
2. That staff be authorized to forward a copy of Report DS-19-77 dated May 1, 2019 and the related Council resolution to the Region of Durham and Durham area municipalities.”
On June 24, 2019, in response to the Region’s request for input on the second discussion paper (the Climate Change & Sustainability Discussion Paper), Council considered Report DS-19-121 dated June 12, 2019 and adopted the following recommendation:
“1. That Report DS-19-121 dated June 12, 2019, be endorsed as the City’s comments on the Climate Change & Sustainability Discussion Paper prepared by the Region of Durham as part of Envision Durham, the Municipal Comprehensive Review of the Durham Regional Official Plan.
2. That staff be authorized to forward a copy of Report DS-19-121 dated June 12, 2019 and the related Council resolution to the Region of Durham and Durham area municipalities.”
On September 23, 2019, in response to the Region’s request for input on the third discussion paper (the Growth Management – Urban System Discussion Paper), Council considered Report DS-19-142 dated September 4, 2019 and adopted the following recommendation:
“1. That Report DS-19-142 dated September 4, 2019, be endorsed as the City’s comments on the Growth Management – Urban System Discussion Paper prepared by the Region of Durham as part of Envision Durham, the Municipal Comprehensive Review of the Durham Regional Official Plan.
2. That staff be authorized to forward a copy of Report DS-19-142 dated September 4, 2019 and the related Council resolution to the Region of Durham and Durham area municipalities.”
On December 2, 2019, in response to the Region’s request for input on the fourth discussion paper (the Environment and Greenlands System Discussion Paper), Council considered Report DS-19-214 dated November 13, 2019 and adopted the following recommendation:
“1. That Report DS-19-214 dated November 13, 2019, be endorsed as the City’s comments on the Environment and Greenlands System Discussion Paper prepared by the Region of Durham as part of Envision Durham, the Municipal Comprehensive Review of the Durham Regional Official Plan.
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2. That staff be authorized to forward a copy of Report DS-19-214 dated November 13, 2019 and the related Council resolution to the Region of Durham and Durham area municipalities.”
The Region has requested that comments on the Transportation System Discussion Paper be submitted by December 30, 2019.
Additional discussion papers will be released subsequently on the following themes:
. Land Needs Assessment (L.N.A.), related technical studies (i.e. Employment Strategy, Intensification Strategy, Designated Greenfield Areas, Density Analysis, etc.) and additional feasibility studies, if required, based on the results of the L.N.A.; and, . Housing.
Regional staff will report back to the Regional Planning and Economic Development Committee on the results of all of the discussion papers during the next stage of the public engagement process.
5.2 The Transportation System in Durham Region
Durham Region’s Transportation System is comprised of interconnected road, rail, transit and active transportation networks. These networks connect a variety of transportation- related land uses, including transit stations, airports, ports and marinas, and can be greatly impacted by large generators of traffic such as logistics providers, other employment areas and commercial developments.
Durham’s Transportation System is also comprised of specific designations for existing and planned facilities, as follows:
. Road Network – consisting of freeways and a hierarchy of roads, currently referred to as Type A, B and C Arterials; . Transit Priority Network – with freeway and arterial road transit corridors and commuter rail; and, . Strategic Goods Movement – including railways, airports and ports.
Growth in travel throughout Durham Region from 2006 to 2016 is attributed to an increase in the Region’s population (14.7%) from approximately 584,000 to 670,000 residents and employment growth (8.2%) from approximately 219,000 to 237,000 jobs. Consequently, travel demand has resulted in more Durham resident weekday trips (4.8%) along the road network and a substantial increase (27.7%) in person-trips using public transit supported by the Durham Region Transit (D.R.T.) bus network and GO Transit regional passenger heavy rail and bus service.
Current growth and development in the Region has resulted in increased travel demand during this period and has created adverse pressures on the Transportation System, leading to more congestion and travel time delays, particularly on the road network. There is a need to develop a more comprehensive multi-modal system that requires additional investment in transit, roads and active transportation, from both an infrastructure and
29 Report to Development Services Committee Item: DS-19-233 Meeting Date: December 9, 2019 Page 6 operations perspective. This would provide sustainable travel options for existing and future residents and workers in Durham Region.
5.3 Background on the Discussion Paper
In December 2017, the Region approved the Durham Transportation Master Plan (T.M.P.), which is a strategic planning document that identifies the policies, programs and infrastructure required to meet the Region’s transportation needs to 2031 and beyond. As a first step to implementing the T.M.P., Regional Official Plan Amendment 171 (R.O.P.A. 171) was adopted by Regional Council in June 2018 and came into effect on July 5, 2018. Through R.O.P.A. 171, key network recommendations and supporting policies made in the T.M.P. were implemented in the D.R.O.P.
The Envision Durham review builds on R.O.P.A. 171, focusing on the actions and recommendations in the T.M.P. that have broader implications on other aspects of the D.R.O.P., particularly through the Growth Management Study work and additional review of the Region’s transportation system.
The Discussion Paper provides an overview of the Region’s Transportation System as it relates to the current Regional Official Plan policy framework and relevant changes to provincial policies, as well as recommended actions contained in Durham’s 2017 T.M.P.
The Discussion Paper highlights existing and future transportation trends within the Region and outlines preliminary approaches for updating the transportation system that would:
. Accommodate forecasted growth and development through the provision of an integrated multi-modal transportation system;
. Shape the form and location of new development;
. Introduce emphasis on the planning and provision of higher order transit; and,
. Establish a more focused approach to transit, active transportation and goods movement including technological advancements with respect to travel behaviour.
5.4 Staff Comments
Staff comments on the Discussion Paper can be found in Attachment 1 to this Report.
6.0 Financial Implications
There are no financial implications associated with the comments in this Report.
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7.0 Relationship to the Oshawa Strategic Plan
The Recommendations in this Report advance the Accountable Leadership, Social Equity and Environmental Responsibility goals of the Oshawa Strategic Plan.
Tom Goodeve, M.Sc.Pl., MCIP, RPP, Director, Planning Services
Warren Munro, HBA, RPP, Commissioner, Development Services Department
31 Item: DS-19-233 Attachment 1
Staff Comments on Durham Region’s Transportation System Discussion Paper
Discussion Questions Posed Staff Comments by Region 1. Beyond “In Delivery” and “In In Durham Region, there are two “In Delivery” transit projects identified: Development” transit . The GO Rail 15-minute two-way all-day service along the Lakeshore East GO corridor projects, which projects do to the existing Oshawa GO Station; and, you feel will have the greatest benefit to increase transit use . The Lakeshore East GO Rail extension to Bowmanville (although four options showing and promote transit different alignments and station locations for the GO Lakeshore East extension are supportive development in currently being reviewed by Metrolinx at this time). Durham? There is one “In Development” transit project in Durham Region, which is the Durham- Scarborough Bus Rapid Transit (B.R.T.) project between Scarborough City Centre and downtown Oshawa along Highway 2. City staff recently provided the Development Services Committee information on this B.R.T. project via Item DS-19-224, dated 32 November 13, 2019. Item DS-19-224 was received for information and staff was directed to report back to the Development Services Committee and Council following the November 19, 2019 Public Information Centre Public Meeting on this project. There are a number of other Frequent Rapid Transit Network (F.R.T.N.) projects in Durham that are currently being assessed by Metrolinx in order to prioritize the projects and develop appropriate timelines for further study, construction and funding in Oshawa. These projects include a future Simcoe Street B.R.T. and Light Rapid Transit (L.R.T.) project and a future Steeles Avenue/Taunton Road Priority Bus/Priority Streetcar project. Beyond the “In Delivery” and “In Development” transit projects, staff are of the opinion that the future Simcoe Street B.R.T. and L.R.T. project will have a great benefit to increase transit use and promote transit supportive development in Oshawa and in Durham. Simcoe Street between Highway 401 and Highway 407 East, where the Simcoe Street B.R.T. and L.R.T. project is generally located, is designated as a Regional Corridor and Regional Transit Spine in both the Durham Regional Official Plan (D.R.O.P.) and the Oshawa Official Plan (O.O.P.). Policy 3.3.1 of the O.O.P. states that: “The City shall encourage increased public transit usage and the transit supportive design of developments. The City shall also support the planning, implementation and operation of an integrated transit priority network consisting of Regional transit spines, inter-regional
Page 1 of 11 Discussion Questions Posed Staff Comments by Region commuter rail and freeway transit services, Transportation Hubs and Commuter Stations, as designated on Schedule “B-1”. It should also be noted that the City of Oshawa supports the Lakeshore East GO Rail extension to Bowmanville and specifically supports Option 1 of the four alternative options being considered by Metrolinx for the corridor extension. Option 1 reflects the preferred alignment approved in the 2011 Environmental Assessment (E.A.) Study, undertaken for the extension, and the alignment and planned station locations along the Canadian Pacific (C.P.) mainline (located north of Highway 401) have already been incorporated into the O.O.P. Option 1 includes four new GO station locations, two of which are in Oshawa: . Thornton’s Corners, located on the west side of Thornton Road South, north of Stellar Drive; and, . A new Central Oshawa GO Station, straddling the C.P. mainline midway between Simcoe Street South and Ritson Road South. On May 21, 2019, Council adopted Resolution CNCL-19-45, confirming that the City
33 continues to support the 2011 E.A. approved route through Central Oshawa to Bowmanville along the C.P. mainline (i.e. Option 1 as noted above) and that the City is committed to working with Metrolinx and the Province to support the Lakeshore East GO Rail extension along this alignment. 2. Should the Region only The High Frequency Transit Network consists of buses in planned High Occupancy Vehicle designate Regional Corridors (H.O.V.) lanes, or buses in mixed traffic, with transit signal priority at major intersections adjacent to the High and other measures to ensure fast and reliable transit service. Planned H.O.V. lanes may Frequency Transit Network? be converted to dedicated bus lanes as growth in ridership warrants. The Regional Corridors currently designated in the D.R.O.P. are appropriate. Similarly, the current Regional approach to corridors identified for Oshawa is appropriate (i.e., as a uniform overlay) and allows for refinements to be made at the area municipal level. However, to address the requirement of Policy 5.2.5.3(d) in the Growth Plan (2019) to delineate Strategic Growth Areas (which include corridors), it is recommended that consideration be given to implementing a text-based approach rather than a mapping approach. This could be achieved by including detailed policies regarding the appropriate depth along corridors, taking locational criteria, land use barriers (e.g., watercourses, freeways, rail lines and hydro corridors) and the lotting fabric into account.
Page 2 of 11 Discussion Questions Posed Staff Comments by Region For example, the City of Oshawa has delineated Intensification Areas along segments of the following Regional corridors: . Simcoe Street North; . Taunton Road East; . King Street West; and, . Bloor Street. However, in the absence of detailed Regional policies providing guidance with respect to what lands can be appropriately be considered within the overlay, the City’s approach is one that generally captures only properties that directly abut the actual corridor. Given that the configuration, size and depth of abutting properties can be extremely diverse, this approach can be improved. Accordingly, criteria should be developed to guide what properties can appropriately be included within these intensification areas (e.g. only the abutting property along a Regional Corridor or two or three properties deep?). As well, clarity is needed as to whether or not the entirety of a large property abutting a Regional Corridor needs to meet the applicable density target, or just a portion of the property within 34 a certain distance of the arterial road forming the corridor spine. 3. Should Transit Oriented Transit Oriented Development (T.O.D.) is the clustering of higher-density, compact Development policies and development in proximity to transit infrastructure. The design of T.O.D. places includes a guidelines for Strategic mix of residential, community use, retail and other pedestrian amenities that support transit Growth Areas be tailored to ridership, along with high quality active transportation connections. T.O.D. stresses the the planned level of transit importance of pedestrian-oriented streets, places and buildings while minimizing parking service? needs. T.O.D. policies and guidelines for Strategic Growth Areas should be tailored to the planned level of transit service. Staff agree that the formulation and application of T.O.D. guidelines and a corresponding strategy with enabling policies in the D.R.O.P. would form an important tool for ensuring that Strategic Growth Areas develop in a manner that supports transit use in the short, medium and long-term as T.O.D. places emerge and evolve. 4. Do you support Major Transit Major Transit Station Areas (M.T.S.A.s) are the areas including and around any existing or Station Areas having specific planned higher order transit station or stop within a settlement area, or the area including transportation-related policies and around a major bus depot in an urban core. M.T.S.A.s are generally defined as the to support their development area within an approximate 500 to 800 metre radius of a transit station, generally as T.O.D. places, similar to representing a 10-minute walk. those already applied to Regional Centres?
Page 3 of 11 Discussion Questions Posed Staff Comments by Region There are three proposed M.T.S.A.s in Oshawa: 1. Bloor Street West M.T.S.A. – surrounding the existing Oshawa GO Station on Bloor Street West; 2. Thornton’s Corners M.T.S.A. – surrounding the proposed Thornton Corners GO station north of Highway 401, west of Thornton Road South; and, 3. Central Oshawa M.T.S.A. – surrounding the proposed Central Oshawa GO Station along the C.P. mainline north of Highway 401, midway between Simcoe Street South and Ritson Road South. Staff note that the Oshawa bus terminal at the southeast corner of Bond Street West and Centre Street North is centrally located within the Downtown Oshawa Urban Growth Centre, and is therefore not the focal point of an M.T.S.A. Staff support M.T.S.As having specific transportation-related policies to guide and share their development as T.O.D. places. However, where an M.T.S.A. is located in a predominately industrial area or a Provincially Significant Employment Zone (e.g. the Bloor 35 Street M.T.S.A.), staff recommend that the site specific policies be developed to allow for flexibility to reflect the existing land use designations given the challenges associated with the conversion of employment lands for non-employment uses. 5. What up-front considerations Some up-front considerations that the D.R.O.P. should provide with respect to transit- should the Regional Official supportive development outside of Strategic Growth Areas are: Plan provide with respect to . Encouraging area municipalities to create street configurations, densities and urban transit-supportive form that support walking, cycling and transit; development outside of Strategic Growth Areas? . Ensuring pedestrian connectivity within and between neighbourhoods on routes that are convenient, safe, attracted well-connected; . Encouraging area municipalities to promote land uses and urban design that support and encourage the use of active and multi-modal transportation; and, . Including policies related to the “first and last mile”, which focuses on getting people to and from transit stations, transportation hubs and fixed route transit services, as well as to and from their home or workplace without the use of a private automobile.
Page 4 of 11 Discussion Questions Posed Staff Comments by Region 6. Do you support a new Transit The current D.R.O.P. designates both existing and future Transportation Hubs and Hub designation and policies Commuter Stations. Transportation Hubs are major travel destinations and facilitate as part of the Regional transfers between different modes of travel or between transit services. There are two Official Plan? future Transportation Hubs identified in Oshawa (located along the Simcoe Street North corridor partially within the Windfields Main Central Area, and also within the Downtown Main Central Area). In addition, there is one existing Commuter Station identified in Oshawa (i.e. the existing Oshawa GO Station) and one future Commuter Station identified in Oshawa (located along Metrolinx’s approved 2011 E.A. rail alignment, south of Bloor Street East, east of Farewell Street). However, there are other locations in the Region that are transit focal points that are not currently identified in the Regional Official Plan as a Transportation Hub, Commuter Station or M.T.S.A. This includes the future commuter station at Thornton’s Corners which is currently deferred in the D.R.O.P. These locations facilitate transfers between different transit routes and/or services and could support complementary T.O.D. in certain locations. Such a new designation could also be supported by policies emphasizing good active
36 transportation connectivity, passenger amenities and prioritization for buses to and from these sites, encouraging use and enhancing the first mile-last mile experience for transit users. Staff support the creation of Transit Hub policies as part of the D.R.O.P. and recommend that the following terminals be considered as a new Transit Hub: . Oshawa Centre Terminal – connects Durham Region Transit routes operating in Oshawa; . North Oshawa Campus Terminal – services the Ontario Tech University and Durham College main campuses; and, . Harmony Terminal – the transfer point for existing and future routes servicing north Oshawa located northeast of the intersection at Harmony Road North and Taunton Road East. However, staff request clarity as to whether or not a new Transit Hub designation would be a land use designation vs. an overlay (e.g. similar to M.T.S.A.s). The City experienced this issue during Official Plan Amendment 179 when a developer appealed a future commuter station overlay, suggesting it should be a designation while the City determined it to be an
Page 5 of 11 Discussion Questions Posed Staff Comments by Region overlay of the underlying land use designation. Staff recommend that a new Transit Hub designation be an overlay of the underlying land use designations. Staff also recommend providing a clear definition of “Transit Hub” in the D.R.O.P., to show how it differs from a Transportation Hub. 7. How can Regional Official Regional Official Plan policies can support planning for all road users when assessing new Plan policies support developments and reconstructing or building new roads by: planning for all road users . Carefully considering intersection spacing, including opportunities to be flexible, where when assessing new appropriate in view of contextual conditions; developments and reconstructing or building . Having regard for and supporting cyclists and cycling infrastructure; new roads? . Having regard for and supporting road safety, speed reduction and traffic calming measures along appropriate stretches of road; . Encouraging the inclusion of street trees and landscaping features along Regional roads;
37 . Considering the implementation of Community Safety Zones; . Considering future transportation related technologies such as autonomous vehicles and electric vehicles/electric vehicle charging stations; . Supporting area municipalities in the provision of sidewalks, lighting, transportation shelters, multi-use paths and other required street furniture appropriate to the planned adjacent land uses and/or planned corridor functionality; and, . Highlighting the importance of road rights-of-way as primary components of the public realm, including urban design policies that support this aspect of their multi-faceted functionality as attractive, high-quality urban spaces. 8. How should the Regional The D.R.O.P. should recognize and plan for enhanced trail connections as key active Official Plan recognize or transportation linkages within hydro corridors and Waterfront Areas by: plan for enhanced trail . Encouraging stewardship, remediation and appropriate open space, park and trail connections as key active initiatives that strive to enhance the ecological features and functions found within the transportation linkages within Natural Heritage System; hydro corridors and Waterfront Areas? . Encouraging and providing incentives and/or partnerships to build trails (with the private sector as well as area municipalities);
Page 6 of 11 Discussion Questions Posed Staff Comments by Region . Encouraging strategic land acquisition along the Lake Ontario shoreline for trail connections; . Encouraging and supporting the licensing of hydro corridor lands for trail and/or park purposes (including community gardens); and, . Encouraging area municipalities to develop strategies to guide the adequate provision of publicly accessible recreation facilities, parkland, open space areas and trails that are in keeping with environmental plans and strategies. 9. Would providing clearer Staff agree that providing clearer future right-of-way requirements for specific sections of future right-of-way arterial roads in the D.R.O.P. would be beneficial for development application review or requirements for specific Class E.A. studies, particularly where opportunities for future road widenings are sections of arterial roads in constrained. the Regional Official Plan be beneficial for development application review or Class E.A. studies? 38 10. Is it appropriate that the The Province is currently reviewing the E.A. Act to streamline the requirements for different Regional Official Plan types of E.A. studies. With the proposed changes that may come forward from these E.A. address an integrated Class reviews, Planning Act processes may pre-approve the alignments of arterial (and longer E.A. and Planning Act collector) roads in new growth areas. However, the Planning Act process alone may not process in new growth areas identify the most suitable alignment from an environmental or engineering perspective, to optimize the alignment and compared to the four-phase Municipal Class E.A. process in planning for new roads. An design for arterial roads? integrated Planning Act and Class E.A. process would examine alternatives for an entire stretch of a new arterial road in a comprehensive manner, for example, instead of just for an arterial road segment within the boundary of a specific development area, such as a proposed draft plan of subdivision. If the Class E.A. requirements are superseded by the Planning Act process, the Region has indicated that it will consider policies that support the application of an integrated Class E.A. and Planning Act process for these new growth areas. In view of the foregoing, it is appropriate that the D.R.O.P. address an integrated Class E.A. and Planning Act process in new growth areas to optimize the alignment and design for roads and bridge crossings.
Page 7 of 11 Discussion Questions Posed Staff Comments by Region 11. Are there aspects of Transportation Demand Management (T.D.M.) is an approach that can help decrease the Transportation Demand use of less sustainable forms of transportation (i.e. driving alone in a vehicle). T.D.M. pairs Management beyond infrastructure development with other approaches, such as marketing and education, to employer and school trips promote behavioural shifts and encourage residents to choose sustainable modes of and review of development transportation (e.g. carpooling, car sharing, offering park-and-ride options, the use of applications that should be H.O.V. lanes and promoting teleworking). addressed in greater detail in Aspects of T.D.M. beyond employer and school trips and the review of development the Regional Official Plan? applications that should be addressed in greater detail in the D.R.O.P. include: . Encouraging transit use and active transportation generally throughout the entire Region for all trips (not just for employer and school trips); . Promoting the development of infrastructure necessary to support and encourage teleworking (e.g. broadband infrastructure); . Encouraging area municipalities and the private sector to develop parking management strategies that make more efficient use of parking resources and that encourage the use
39 of sustainable modes of transportation; . Encouraging area municipalities to update their parking and zoning by-laws to support and facilitate T.D.M. measures; and, . Encouraging partnerships between transit providers and the private sector and/or area municipalities to offer incentives for taking transit to and from special events in the Region. 12. What should the Region’s One of the goals of Oshawa’s Integrated Transportation Master Plan is “encouraging role be in supporting sustainability”, which includes reducing environmental impacts by supporting active carpooling, and in what transportation, transit and carpooling. locations would this be most The Region should be encouraging area municipalities to promote carpooling and should appropriate? also be responsible for education and outreach (i.e. through Smart Commute Durham). Owing to the fact that Metrolinx recently cancelled its funding for Smart Commute (including Smart Commute Durham), it is now more important than ever for the Region to continue to support Smart Commute Durham, which helps local employers and commuters explore and promote sustainable commuting options, such as carpooling, teleworking, transit, cycling, walking or flexible work hours.
Page 8 of 11 Discussion Questions Posed Staff Comments by Region Areas that could benefit from greater carpool support include: . Higher density areas such as Strategic Growth Areas (e.g. Oshawa’s Urban Growth Centre); . Areas surrounding the Region’s largest employers (in Oshawa this includes the Ontario Ministry of Finance, Lakeridge Health, and Ontario Tech University and Durham College in the Simcoe Street North corridor); . The existing Oshawa GO Station on Bloor Street West; and, . Areas along the Highway 407 East corridor (e.g. near the Simcoe Street interchange, where carpooling may be more likely to occur). 13. What are the potential The potential implications of emerging technologies on the Regional Transportation System implications of emerging include: technologies on the Regional . The demand for more electric vehicle charging stations throughout the Region; Transportation System? . Increased funding for necessary infrastructure improvements to support these emerging 40 technologies (i.e. money allocated to pay for electric charging stations at City or Regional facilities); . The need for incentives to support these emerging technologies; . The need for studies and policies related to and supporting autonomous vehicles and connected vehicles; and, . The need to understand how emerging technologies may impact the need/demand for parking. 14. How should the Regional The Port of Oshawa is the Region’s largest port and an important component of the Official Plan be enhanced to Region’s transportation system and economy. From 2007-2017, the port handled over 500 better support the role of vessels, shipped over 357,000 metric tonnes of cargo and generated over $46 million in ports to the regional economic activity per year. Recently, in June 2019, the Oshawa Port Authority economy, such as the Port of amalgamated with the Hamilton Port Authority to create the new Hamilton-Oshawa Oshawa and the St. Marys Port Authority (H.O.P.A.). Cement dock facility? The Port of Oshawa is linked to the Region’s Transportation System via Farewell Street. Schedule ‘B-2’, Preferred Haul Routes, of the O.O.P. shows that the preferred haul route for the Oshawa Harbour, which includes the Port of Oshawa, is Farewell Street, which connects to Highway 401.
Page 9 of 11 Discussion Questions Posed Staff Comments by Region O.O.P. Policy 2.14.2.4 states that: “It is the intent of this Plan to recognize the economic and recreational benefits of the Oshawa Harbour to the City and the Region. In this regard, the City shall encourage the modernization and expansion of the Oshawa Harbour and shall co-operate with all levels of government and their appropriate agencies to maximize the economic, industrial and recreational potential of the Oshawa Harbour. The City shall have regard for the continued economic viability of the Oshawa Harbour in the consideration of any development or redevelopment of lands in the vicinity of the harbour.” The D.R.O.P. should include policies that support the enhancement and continued development of the Port of Oshawa while recognizing that the developable lands surrounding the Port offer a unique and desirable opportunity for appropriate recreational, residential and mixed-use development based on the area’s locational attributes. Further, Provincial and Federal governments should be partly responsible for improvements to the transportation linkages to the Port of Oshawa, including providing
41 more efficient interchanges and repairing/reconstructing Farewell Street. Lastly, in accordance with the Canada Marine Act, a new port authority is required to develop a land use plan. After consultation with H.O.P.A., staff was advised that H.O.P.A. will be initiating a land use plan in the near future. Staff recommends that both the City of Oshawa and Region of Durham be included in the consultation for H.O.P.A.’s future land use planning exercise. 15. What should the Region The Region should consider road design criteria and/or guidelines that includes space for consider in supporting the all road users (to particularly space for active transportation), including along preferred haul Strategic Goods Movement routes forming the Strategic Goods Movement Network which also traverse Strategic Network while preserving a Growth Areas. complete streets approach for The Region should also investigate the feasibility of truck-only lanes on select sections of all road users? roads identified as preferred haul routes in the Region, to avoid potential conflicts with other road users (i.e. cyclists, private automobiles, etc.). 16. Have we missed any trends The Region of Durham should consider accessible transportation in the Transportation that you feel should be System context as part of Envision Durham. With an aging population, it is important to reviewed and considered in consider the inclusion of policies related to providing accessible and affordable the Transportation System transportation for persons with disabilities and for persons of all ages who may have context as part of Envision mobility challenges (e.g. children in strollers and their parents, older children/young adults Durham? and seniors). The Region of Peel’s Official Plan has an entire section (Section 5.9.11) on
Page 10 of 11 Discussion Questions Posed Staff Comments by Region accessible transportation, which is a good example of the types of accessible transportation policies that the Region of Durham could consider implementing in the D.R.O.P. Similarly, the Region of Durham should also consider age-friendly transportation guidelines and/or policies, with a focus on active transportation policies related to school travel (e.g. encouraging school-age children to use active transportation to get to and from school). The City of Oshawa’s 2019 Age-Friendly Strategy includes three objectives related to transportation: 1. Improve awareness of transportation options for older adults (e.g. collaborate with Durham Region Transit to consider promoting, improving and increasing awareness of public transit); 2. Enhance the Oshawa Senior Citizens Centre (O.S.C.C.) transportation program (e.g. enhance the O.S.C.C. Rideshare Program and share with community partners); and, 3. Promote opportunities to increase active transportation (e.g. consider improving path
42 and trail linkages between communities and destinations). Staff recommend that the Region update the 2012 Regional Cycling Plan. Lastly, staff recommend that the Region review their current practice and policies related to access off Regional roads, to ensure that they are aligned with the remainder of the D.R.O.P. (which encourages intensification and infil along Regional corridors) and to allow driveway access along Regional roads, where appropriate and permitted.
Page 11 of 11 Item: DS-19-233 Attachment 2
If this information is required in an accessible format, please contact 1-800-372-1102 ext. 2564
The Regional Municipality of Durham Report
To: Planning and Economic Development Committee From: Commissioner of Planning and Economic Development Report: #2019-P-41 Date: October 1, 2019
Subject:
Envision Durham – Transportation System Discussion Paper, File D12-01
Recommendation:
That the Planning and Economic Development Committee recommends to Regional Council:
A) That a copy of report #2019-P-41 be received for information; and
B) That a copy of report #2019-P-41 be forwarded to Durham’s area municipalities; conservation authorities; the Ministry of Municipal Affairs and Housing; the Ministry of Transportation; Metrolinx, and the Durham Active Transportation Committee for review and comment.
Report:
1. Purpose
1.1 The purpose of this report is to present the Transportation System Discussion Paper which is the fifth paper in a series being released as part of Envision Durham, the Municipal Comprehensive Review (MCR) of the Regional Official Plan (ROP) (see Attachment #1).
1.2 Comments on this Discussion Paper are requested by December 30, 2019 (90- day commenting period).
43 Report #2019-P-41 Page 2 of 5
2. Background
2.1 On May 2, 2018, Regional Council authorized staff to proceed with Envision Durham, as detailed in Commissioner’s Report #2018-COW-93.
2.2 On February 5, 2019, the Planning Division initiated the first stage (“Discover”) of the public engagement program for Envision Durham by launching a project web page and public opinion survey, as detailed in Commissioner’s Report #2019-P-4 and Commissioner’s Report #2019-P-35. The Planning Division initiated the second stage (“Discuss”) on March 5, 2019, wherein participants are being asked to provide input on various theme-based Discussion Papers as follows:
a. Agriculture and Rural System (Commissioner’s Report #2019-P-12, released March 5, 2019); b. Climate Change and Sustainability (Commissioner’s Report #2019-P-26, released May 7, 2019); c. Growth Management, including but not limited to reports on:
• The Urban System (Commissioner’s Report #2019-P-31, released June 4, 2019); • Land Needs Assessment (LNA) and related technical studies, i.e. Employment Strategy, Intensification Strategy, Designated Greenfield Area Density Analysis, etc.; and • Additional feasibility studies, if required based on the results of the LNA.
d. Environment and Greenlands System (Commissioner’s Report #2019-P-36, released September 3, 2019); e. Transportation System, which is the subject of this report; and f. Housing.
2.3 Each Paper contains discussion questions, with a supplemental workbook, to help facilitate discussion and input.
44 Report #2019-P-41 Page 3 of 5
3. Transportation System Discussion Paper
3.1 The Region’s Transportation System is comprised of interconnected road, rail, transit and active transportation networks. These networks connect a variety of transportation-related land uses, including transit stations, airports, ports and marinas, and large generators of traffic such as logistics providers, other employment areas and commercial developments.
3.2 In December 2017, the Region approved the Durham Transportation Master Plan (TMP), which is a strategic planning document that defines the policies, programs and infrastructure needed to meet the Region’s transportation needs to 2031 and beyond. As a first step to implement the TMP, Amendment #171 to the Regional Official Plan (ROP) was adopted by Council in June 2018 to implement key network recommendations and supporting policies made in the TMP.
3.3 The Envision Durham review provides the next step to implement the transportation “vision” articulated in the TMP, by reviewing specific recommendations and actions related to the ROP and other planning-related policies and guidelines that could influence ROP policy. Accordingly, this Paper:
• Provides an overview of the current provincial and Regional policy framework related to transportation planning; • Highlights key travel trends for Durham residents and their impacts on the Transportation System; • Outlines new provincial and Regional policy requirements and directions since the previous ROP review; and • Identifies preliminary approaches and questions for discussion and feedback.
3.4 The Discussion Paper is intended to serve as a starting point for stakeholder input on policy considerations for the Transportation System, and to foster discussion on how it can be better integrated with land use change and development to:
• Accommodate forecasted growth and development in the Region; • Address planning for new growth areas and those areas where redevelopment and intensification are targeted, based on the new Provincial Growth Plan; and • Establish a more focused approach to transit, active transportation and goods movement, and identify potential impacts of technological advancements on travel behaviour.
45 Report #2019-P-41 Page 4 of 5
3.5 This Discussion Paper was prepared by Regional Planning staff in consultation with staff from the Office of the CAO, the Works Department, Durham Region Transit, Envision Durham’s Area Municipal Working Group and Provincial staff from the Ministry of Municipal Affairs and Housing.
3.6 The Discussion Papers do not present positions on potential changes that may be part of the ROP, but rather provide information and pose questions for consideration.
4. Next Steps
4.1 Each of the Discussion Papers will be posted to the project web page at durham.ca/EnvisionDurham for public input. Interested parties are encouraged to subscribe for project updates and email notifications through this web page. The Discussion Papers will be announced by way of:
a. News releases and public service announcements; b. Social media platforms, including Facebook, Twitter and LinkedIn; c. Email notifications; d. Publications in internal and external newsletters; and e. Materials published online.
4.2 Comments on the Transportation System Discussion Paper are requested by December 30, 2019 (90-day commenting period). Regional staff will report to Committee on the results of the Discussion Papers through future reports during the next stage of the public engagement process.
4.3 It is recommended that a copy of this report be forwarded to Regional Council for information and be forwarded to Durham’s area municipalities, conservation authorities, relevant provincial ministries, Metrolinx and the Durham Active Transportation Committee for review and comment. In addition, other key stakeholders will be notified of this Discussion Paper’s release. The Discussion Paper will also be provided to interested Indigenous communities and others who may have an interest in the Envision Durham study process.
5. Attachments
Attachment #1: Transportation System Discussion Paper
46 Report #2019-P-41 Page 5 of 5
Respectfully submitted,
Original signed by
Brian Bridgeman, MCIP, RPP Commissioner of Planning and Economic Development
Recommended for Presentation to Committee
Original signed by
Elaine C. Baxter-Trahair Chief Administrative Officer
47 Transportation System Discussion Paper
October 2019 Durham Region ENVISION Planning and Economic DURHAM Development Department 48 This Discussion Paper is published for public and agency comment as part of Envision Durham, the Municipal Comprehensive Review of the Regional Official Plan.
Report contents, discussion questions and proposed directions, where applicable, do not necessarily represent the position of Regional Council on changes that may be considered to the Regional Official Plan.
All information reported and/or collected through this Discussion Paper will help inform and be used as part of the Municipal Comprehensive Review.
Please provide your comments on this Transportation System Discussion Paper by December 30, 2019.
49 About Durham Region
Durham Region is the eastern anchor of the Greater Toronto Area, in the Greater Golden Horseshoe area of Ontario. At over 2,590 square kilometres, Durham offers a variety of landscapes and communities, with a mix of rural, urban and natural areas. The southern lakeshore communities of Pickering, Ajax, Whitby, Oshawa and Clarington provide urban areas and a diverse employment base. The northern Townships of Scugog, Uxbridge and Brock are predominantly rural, with a thriving agricultural sector. Durham Region is the home of the Mississaugas of Scugog Island First Nation and spans a portion of the territories covered by the Williams Treaties of 1923.1 Figure 1: Map of the Region of Durham
Over 80 per cent of the Region lies within the provincially-designated Greenbelt, which also About Envision Durham contains the environmentally significant Oak Envision Durham, the Municipal Ridges Moraine. With access to ample green Comprehensive Review (MCR) of the space and lakes, rivers and urban amenities, Regional Official Plan (ROP), is an opportunity Durham Region offers a high quality of life for to plan for fundamental change, by replacing both city and rural residents. the current ROP and establishing a Today, Durham is home to just under progressive and forward-looking planning 700,000 people. By the year 2041, our vision for the Region to 2041. population is expected to grow to 1.2 million Over the next few years, the Region is people, with over 430,000 jobs. Our vision is undertaking Envision Durham to review: to create healthy and complete, sustainable communities, shaping Durham into a great • How and where our cities and towns may place to live, work, play, grow and invest. grow. • How to use and protect our land and resources.
1 The Williams Treaties include traditional territories of Mississaugas of Alderville, Curve Lake, Hiawatha, and seven First Nations, including the Chippewas of Scugog Island. Beausoleil, Georgina Island and Rama and the
1 | Envision Durham 50 • What housing types and job • The Growth Plan for the Greater Golden opportunities are needed for our Horseshoe, 2017 (Growth Plan), which residents. was replaced by A Place to Grow: Growth • How people and goods move within, Plan for the Greater Golden Horseshoe in across and beyond our Region. May 2019. • The Greenbelt Plan, 2017. We’re planning for an attractive place to live, • The Oak Ridges Moraine Conservation work, play, grow and invest–and we’re asking Plan, 2017 (ORMCP). for your help. The Planning Act requires the Region to Why review the Official Plan? complete a provincial plan conformity exercise to amend the ROP to ensure that it: The ROP guides decisions on long-term growth, infrastructure investment and • Conforms with provincial plans or does development–providing policies to ensure an not conflict with them. improved quality of life–to secure the health, • Has regard to matters of provincial safety, convenience and well-being of interest. present and future residents of Durham. • Is consistent with Provincial Policy Statements. Under the Planning Act, there is a legislative requirement to review the existing ROP every Envision Durham constitutes Durham’s five years. Since the approval of the last ROP provincial plan conformity exercise and its update (January 2013), the Province of five-year review of the ROP, satisfying these Ontario has completed several significant legislative requirements. provincial policy initiatives, including the coordinated review and update to the following provincial plans:
How to get involved
Public input is integral to the success of Envision Durham–we want to hear from you!
Please use this opportunity to share your vision for Durham–tell us your thoughts and opinions on the key Discussion Questions raised throughout this document (Appendix A).
Join the conversation by visiting durham.ca/EnvisionDurham to submit your comments.
To receive timely notifications on the Envision Durham process, please visit durham.ca/EnvisionDurham to subscribe for project updates
Envision Durham| 2 51 Table of Contents About Durham Region ...... 1 About Envision Durham ...... 1 Why review the Official Plan? ...... 2 Executive summary ...... 6 1.0 Introduction ...... 8 2.0 Transportation trends and observations in Durham ...... 9 2.1 Growth in travel ...... 9 2.2 Changing commuting and travel patterns ...... 10 2.2.1 Commuting by Durham residents ...... 10 2.2.2 Weekday trips made by Durham residents ...... 12 2.2.3 Use of public transit and non-auto modes ...... 13 2.3 Tracking infrastructure expansion and performance ...... 15 2.3.1 Provincial highway network ...... 15 2.3.2 Regional road and cycling networks ...... 16 2.3.3 Major public transit infrastructure and expansion ...... 17 3.0 Provincial policies for transportation planning ...... 19 3.1 Provincial Policy Statement ...... 20 3.2 A Place to Grow: Growth Plan for the Greater Golden Horseshoe ...... 21 3.3 Metrolinx Regional Transportation Plan ...... 21 3.4 Greater Golden Horseshoe Transportation Plan ...... 23 3.5 Provincial guidelines ...... 24 3.5.1 MTO Transit-Supportive Guidelines ...... 24 3.5.2 Metrolinx Mobility Hub Guidelines ...... 25 3.5.3 MTO Freight-Supportive Guidelines ...... 25 4.0 Durham Region transportation policy context ...... 27 4.1 Durham Region Strategic Plan ...... 27 4.2 Durham Transportation Master Plan ...... 27 4.3 Durham Regional Official Plan ...... 29 4.3.1 Amendment #171 to the Regional Official Plan ...... 29 4.4 Regional Cycling Plan and Regional Trail Network ...... 31 4.5 Arterial Corridor Guidelines ...... 32 4.6 Durham Region Transit strategies ...... 33
3 | Envision Durham 52 4.6.1 Five-Year Service Strategy ...... 33 4.6.2 Rural-North Service Strategy ...... 35 5.0 Policy considerations ...... 36 5.1 Land use and transportation ...... 36 5.1.1 Transportation planning considerations for Strategic Growth Areas ...... 36 5.1.2 Transit Oriented Development ...... 37 5.1.3 Supporting development in Major Transit Station Areas ...... 38 5.1.4 Transit-supportive development ...... 39 5.2 Public transit ...... 40 5.2.1 Other Transit Hubs...... 40 5.2.2 GO Lakeshore East Extension ...... 40 5.2.3 407 Transitway in Durham...... 42 5.3 Active transportation ...... 43 5.3.1 Planning for all road users ...... 43 5.3.2 Cycling and trails ...... 44 5.3.3 Connecting and using public lands ...... 45 5.4 Roads and corridor protection ...... 47 5.4.1 Right-of-way map schedule in Regional Official Plan ...... 47 5.4.2 Complete streets approach ...... 48 5.4.3 Corridor protection and the Class Environmental Assessment process ...... 48 5.4.4 Road safety ...... 49 5.4.5 Climate change adaptation and mitigation ...... 50 5.5 Travel choices ...... 51 5.5.1 Transportation Demand Management for employers ...... 51 5.5.2 Transportation Demand Management development guidelines ...... 52 5.5.3 Active and sustainable school travel ...... 52 5.5.4 Commuter lot program ...... 52 5.5.5 Age-friendly communities ...... 54 5.5.6 Emerging technologies ...... 54 5.6 Goods movement ...... 55 5.6.1 Port of Oshawa and St. Marys Cement dock ...... 55 5.6.2 Pickering federal airport lands...... 56 5.6.3 Traffic Management Guideline for Hamlets ...... 58
Envision Durham| 4 53 6.0 Next steps ...... 59 Appendix A: Discussion questions workbook ...... 60 Appendix B: Glossary ...... 65 Acronyms ...... 69
5 | Envision Durham 54 Executive summary • Transit Priority Network–with freeway and arterial road transit corridors and The Transportation System Discussion Paper commuter rail (refer to Figure 23, page is the fifth in a series of Discussion Papers to 30). be released as part of the Envision Durham • Strategic Goods Movement–including exercise. This paper provides an overview of railways, airports and ports. the Region’s Transportation System as it relates to the current Regional Official Plan Growth in travel throughout Durham Region (ROP) policy framework, relevant changes to from 2006 to 2016 is attributed to an provincial policies, including recommended increase in the Region’s population (14.7 per actions contained in the Durham cent) and employment growth (8.2 per cent). Transportation Master Plan (TMP), 2017. Consequently, travel demand has resulted in more Durham resident weekday trips (4.8 per The paper highlights existing and future cent) along the road network and a transportation trends within the Region and substantial increase (27.7 per cent) in outlines preliminary approaches for updating person-trips using public transit supported by the Transportation System that would: the Durham Region Transit (DRT) bus network and GO Transit regional passenger • Accommodate forecasted growth and heavy rail and bus service. development through the provision of an integrated multi-modal transportation Current growth and development has system. resulted in increased travel demand during • Shape the form and location of new this period and has created adverse development. pressures on the Transportation System, • Introduce emphasis on the planning and leading to more congestion and travel time provision of higher order transit. delays, particularly on the road network. • Establish a more focused approach to There is a need to develop a more transit, active transportation and goods comprehensive multi-modal system that movement including technological requires additional investments in transit, advancements on travel behaviour. roads and active transportation, from both an infrastructure and operations perspective. In the discussion of preliminary approaches, This would provide sustainable travel options the paper poses a series of questions for for existing and future residents and workers discussion and feedback. in the Region.
Durham’s Transportation System is This paper is intended to serve as a comprised of specific designations for backgrounder for input and discussion. existing and planned facilities, as follows: Durham Region is committed to working collaboratively with all stakeholders, • Road Network–consisting of freeways and including the local area municipalities, a hierarchy of roads, currently referred to conservation authorities, the Ontario as Type A, B and C Arterials. Ministry of Municipal Affairs and Housing,
Envision Durham| 6 55 the Ontario Ministry of Transportation and policies that not only implements (MTO), Metrolinx, the development provincial direction, but responds to issues in community, other stakeholders and the a way that is tailored to Durham’s existing public to develop a transportation system and emerging development context.
How to get involved
Public input is integral to the success of Envision Durham–we want to hear from you!
Please use this opportunity to share your vision for Durham–tell us your thoughts and opinions on the key Discussion Questions raised throughout this document (Appendix A).
Join the conversation by visiting durham.ca/EnvisionDurham to submit your comments.
To receive timely notifications on the Envision Durham process, please visit durham.ca/EnvisionDurham to subscribe for project updates.
7 | Envision Durham 56 1.0 Introduction • The current policy framework for transportation planning in the Region. A well-planned and functioning • Key trends in the travel behaviour of Transportation System is an integral part of Durham residents over the last decade. creating healthy and complete, sustainable • The relationship between transportation communities. The transportation system is and land use within the context of comprised of interconnected road, rail, implementing actions of the TMP. transit and active transportation networks. • Approaches to accommodate forecasted Planning for these networks to accommodate growth and development (to be identified future growth in a sustainable manner is a as part of the upcoming Land Needs key element of the current Durham Regional Assessment work), that supports Official Plan (ROP). Transportation-related intensification as well as new growth land uses such as transit stations, airports, areas, higher levels of transit, active ports and marinas are also components of transportation and addressing the overall transportation system, which can technological change. be greatly impacted by large generators of traffic such as logistics providers, other employment areas and commercial developments. Envision Durham provides an opportunity to review transportation related policies in the ROP and identify subjects and areas that need to be addressed, updated and/or strengthened. The Guiding Principles and Strategic Directions of the Durham Transportation Master Plan (TMP), completed in December 2017, provides recommendations to the year 2031 and helps to form the basis for a long-term transportation “vision” for the Region (refer to Figure 2).
This Discussion Paper is the fifth in a series Figure 2: Guiding Principles and Strategic Directions from the being released as part of the Envision Durham Transportation Master Plan, 2017 Durham exercise. It provides a broad overview of current transportation issues affecting Durham Region, and raises questions on topics that can be addressed as part of Envision Durham. Specifically, this paper discusses the following:
Envision Durham| 8 57 2.0 Transportation trends and 2016. At the Toronto-Durham boundary, nearly 34,000 person-trips per day were observations in Durham made by GO train in 2016. This compares with just over 26,000 person-trips per day in The following identifies some of the 2006, or a 27.7 per cent increase during the transportation trends and observations in period.2 Durham over the last decade, which will influence transportation planning for Durham.
2.1 Growth in travel
From 2006 to 2016, Durham’s population grew by 14.7 per cent, from approximately 584,000 to 670,000 residents. During this period, Durham’s employment grew by 8.2 per cent, from nearly 219,000 to approximately 237,000 jobs. By comparison, the number of trips made by Durham residents during a typical weekday increased by 4.8 per cent (from 1.22 million to 1.28 million trips). During the morning peak period, the total number of trips increased by 6.3 per cent (from 281,000 to 299,000 trips), Figure 3: Durham population, employment and trips made by residents, 2006-2016 (Source: Durham Region Planning shown in Figure 3. and Economic Development Department, Semi-Annual Population and Household Estimates; Statistics Canada, Typically, trips grow at a lesser rate than Census Journey to Work Data; Transportation Tomorrow population or employment growth, especially Survey) with an aging population and increases in Increases in travel demand during the persons who work at home who, on average, period, and expansion to the road and take fewer trips than those who usually transit network, have helped facilitate commute to work or school. However, the growth on the transportation system. trips being made during the morning peak However, increased growth in travel has also period represent an increasing share of daily contributed to more congestion and travel trips made by Durham residents. time delays on the network, particularly for Growth in GO Transit and DRT ridership has auto trips. been strong during the 2006-2016 period as well. DRT ridership grew from 6.94 million annual passengers in 2006 to 10.26 million in
2 Durham Region Cordon Count Program.
9 | Envision Durham 58 2.2 Changing commuting and travel • From 2006 to 2016, the number of trips patterns to York and Peel regions increased substantially. Not only is travel by Durham residents growing, but travel patterns have also changed over the last decade.
2.2.1 Commuting by Durham residents
From 2006 to 2016, “out-commuting” by Durham residents to work locations outside of the Region, and the Greater Toronto and Hamilton Area (GTHA), has increased. In 2006, 53 per cent of Durham residents with a trip to work stayed within the Region during the morning peak period (refer to Figure 4). By 2016, this figure declined to 48 per cent. This means that more than half of Durham residents are crossing the Region’s westerly boundary in the morning to get to work, mostly in Toronto and York Region. With population growth significantly outpacing employment growth in Durham Region, and job opportunities outside of Durham representing a greater share of employment for Durham residents, the level of out- Figure 4: Work trips made by Durham residents by general commuting has increased. destination, morning peak period (6 to 9 a.m.), 2006-2016 (Source: Transportation Tomorrow Survey) Figure 6 shows where Durham residents who commute outside of the Region go to work during the morning peak period, for 2006 and 2016, and illustrates that:
• In 2006, the highest number of external work trips were from Durham to Scarborough, followed by downtown Toronto and the rest of Toronto. • In 2016, the highest number of external work trips were from Durham to Figure 5: GO Transit bus in downtown Newcastle (Source: downtown Toronto, but trips to Durham Region Planning and Economic Development Scarborough and the rest of Toronto Department) were almost as high.
Envision Durham| 10 59 Figure 6: Work trips made by Durham residents to destinations outside Durham during the morning peak period (6 to 9 a.m.), by primary travel mode, 2006 and 2016 (Source: Transportation Tomorrow Survey)
In addition, the Journey to Work data–which was part of the 2016 Census from Statistics Canada–revealed that in 2016, Durham residents had the longest average commute at 35 minutes, compared to other upper- and single-tier municipalities in the GTHA (refer to Figure 7). For Durham residents, those who took public transit as their primary mode of travel had the longest average commute times at 62.5 minutes (largely influenced by GO train trips) while those who Figure 7: Average commuting duration for GTHA residents, 2016 (Source: Statistics Canada, Journey to Work data, 2016 used active transportation averaged 14.3 Census) minutes.
11 | Envision Durham 60 2.2.2 Weekday trips made by Durham cent, while Brock had the lowest at 49 per residents cent. All municipalities showed a decline in the share of trips that stayed within Durham For weekday trips overall, the proportion of during the 10-year period. trips made by residents of Durham Region that stay within the Region is higher than for The median trip length also increased for all work trips during the morning peak period. modes of travel: Auto Driver, Auto Passenger, This is because school, shopping, and other DRT and GO Bus, and GO Train, as shown in trips tend to be more localized than work Figure 9. Increased transit trip lengths may trips, especially when measured throughout also be viewed as a positive statistic, as the day. longer trips are being better served by DRT (or a combination of DRT and GO bus service) Figure 8 illustrates the percentage of rather than auto trips. However, increased weekday trips made by residents that stay median trip distances mean that trips to within the Region, for Durham as a whole work, school and other destinations are, and by area municipality, from 2006 to 2016. overall, getting both longer and further In 2016, Oshawa had the highest percentage dispersed than they previously were for of trips that stay within Durham at 90 per Durham residents.
Figure 8: Weekday trips made within Durham by area municipality and Durham Region as a whole, 2006-2016 (Source: Transportation Tomorrow Survey)
Envision Durham| 12 61 Figure 9: Weekday median trip length by primary travel mode for Durham residents, 2006-2016 (Source: Transportation Tomorrow Survey)
For elementary and secondary student travel, per cent to almost 28.6 per cent, and active modes and transit access to school are declined slightly from 36.5 per cent to 35.8 declining while auto trips are increasing. For per cent for those students ages 14 to 17. example, in 2006, 42.4 per cent of Durham This is consistent with trends across the students ages 11 to 13 walked to school. By GTHA, except that the auto share elsewhere 2016, this declined to 36.5 per cent. For in the GTHA for students ages 14 to 17 has Durham students ages 14-17, a smaller increased.3 decline was experienced (from 31.4 per cent to 30.9 per cent). Durham students cycling or 2.2.3 Use of public transit and non-auto taking transit to school has also decreased in modes terms of share of overall trips in the period. Not only has ridership grown for GO Transit In contrast, auto trips to school for Durham and DRT since 2006, public transit’s share of students ages 11 to 13 increased from 24.4
3 School Travel in Durham Region, Metrolinx, 2018.
13 | Envision Durham 62 overall trip making has increased slightly for work trips.
Public transit represented about 11 per cent of morning peak period work trips made by Durham residents (both within and outside Durham) in 2016, compared to 10 per cent in 2006 (refer to Figure 10). Looking forward to 2031,4 transit is forecasted to represent 20 per cent of morning peak period work trips– double the share from 2006.
The percentage of Durham residents staying in Durham to work is expected to rebound from 48 per cent in 2016 to 58 per cent in 2031, reversing the downward trend for the 2006-2016 period as previously identified in Figure 4.
As demonstrated through the analysis of travel trends contained in the Durham TMP, an increased share of Durham residents staying in the Region to work potentially increases the number of shorter trips made, Figure 10: Work trips made by Durham residents by mode, creating greater opportunity for these trips morning peak period (6 to 9 a.m.), 2006-2031 (Source: Transportation Tomorrow Survey; *2031 data derived from to be made using DRT or active the Durham Region Transportation Planning Model) transportation rather than cars. If the Region does not meet its population and Road transportation produces 47 per cent of employment forecasts, or if elements of the Ontario’s carbon pollution. A large TMP Preferred Network are not realized, proportion of greenhouse gas (GHG) then the share of transit (and active emissions are caused by personal vehicles transportation) trips would likely be reduced (Source: Durham Community Energy Plan at the expense of a greater share of auto Baseline Energy Study for 2015, Final Report, trips. This would potentially lead not only to May 2017). more congestion on our roads, but would create greater impacts on the environment.
4 Based on the Durham Region Transportation refinements to the transit and road networks, as Planning Model, using the TMP Preferred Network. applied through the 2018 Region-wide Development The TMP Preferred Network includes several minor Charge Background Study.
Envision Durham| 14 63 How DRT or GO Transit users access existing 2.3 Tracking infrastructure expansion GO Train service in Durham Region is an and performance important consideration for transit planning. Figure 11 compares the primary mode of 2.3.1 Provincial highway network travel used during a typical weekday using data collected by Metrolinx in 2016. Since 2006, progress has been made by the Province of Ontario, the Region and the local The Ajax GO Station has the highest share of area municipalities to expand the road transit use, at 19 per cent, and the Oshawa network. With respect to provincial highway GO Station has the lowest share at four per infrastructure, Table 1 lists key projects that cent. While passenger pick up/drop off and have been constructed by year of substantial walking was relatively consistent between completion in Durham. the stations, active transportation varied considerably. Pickering had the highest share The most significant additions to the of travellers arriving to the GO station by provincial highway network have been walking or cycling, at eight per cent Highways 407 and 412. Phase 1 consisted of combined, while Oshawa had the lowest the extension of the highway from Brock share at one per cent, with no walk trips Road in Pickering easterly to Harmony Road surveyed. in Oshawa, and the construction of Highway 412 in Whitby. This phase also included the The location of the station, transit routes and partial construction of the Lake Ridge Road frequency, and availability of parking are key interchange at Highway 401. Phase 1 opened contributors to reducing the auto driver to traffic in June 2016, with the Highway share to and from GO stations. Consequently, 401/Lake Ridge Road interchange opening in planning for improved access to GO stations December 2016. by transit is an area of focus of the Durham TMP and DRT’s Five-Year Service Strategy, along with Metrolinx’s GO Station Access Study, 2016.
Figure 11: Travel mode used to access GO stations in Durham during a typical weekday, 2016 (Source: Metrolinx, GO Station Access Study, 2016)
15 | Envision Durham 64 Phase 2A extended the highway to Taunton Road, using a portion of future Highway 418. This phase opened in January 2018. Currently, Phase 2B is under construction, which will further extend the highway easterly to Highway 35/115, and complete Highway 418 southerly to Highway 401. Phase 2B is targeted for completion in 2020.
2.3.2 Regional road and cycling networks Figure 12: Highway 407, Phase 2 construction, looking southwest from the Bowmanville Avenue interchange (Source: Blackbird Infrastructure Group, August 2018)
Table 1: Key provincial highway infrastructure projects, 2006 to present Year Project Description 2006 Highway 7/12 reconstruction and new passing lanes 2007 Highway 401 widening to 10 lanes (Westney Road to Salem
Road) Figure 13: Brock Street widening construction, Whitby (Source: Region of Durham Planning and Economic 2009 Highway 401 interchange at Development Department) Stevenson Road (and closure of Park Road interchange) Between 2006 and 2016, the size of the completed Regional road network actually decreased in 2013 Highway 7 widening to 4 lanes terms of overall length, from 832 kilometres (Brock Road to Baldwin Street) (km) to 826 km, resulting from the transfer of completed Harwood Avenue and a section of Church Street to the Town of Ajax, and the Region 2015 Highway 401 interchange assuming a section of Salem Road. However, reconstruction at Holt Road in terms of overall lane-km (which is the completed length of Regional roads, multiplied by the 2016 Highway 407 East Phase 1 number of lanes by section), there was an Extension to Harmony Road, increase from 2,087 lane-km in 2006 to 2,165 including Highway 412, opened lane-km in 2016. The increase in lane-km is a (without tolls to January 2017) result of several large road widening projects 2018 Highway 407 East Phase 2A Extension to Taunton Road opened
Envision Durham| 16 65
undertaken in the period, including sections (BRT) lanes along Kingston Road in Pickering of Brock Road in Pickering; Taunton Road in and Ajax, along with passenger amenities, Ajax, Whitby and Oshawa; Westney Road in buffered cycling lanes and maintenance Ajax; and Bayly and Victoria Streets in Ajax depot upgrades. As of year-end 2018, annual and Whitby, respectively. ridership on the 900 PULSE Highway 2 service was almost three million passengers. Regional cycling infrastructure has also increased over the last several years. In 2012, The Durham-Scarborough BRT Transit Project there was about 18.7 km of cycling facilities Assessment Process (TPAP) Environmental on the Regional road network, comprised Assessment (EA) study was initiated by mostly of boulevard Multi-use Paths (MUPs) Metrolinx in May 2019 as a preliminary and paved shoulder bike lanes. In 2016, this design and business case for the corridor increased to 39.1 km. In 2018, there was from Scarborough City Centre to downtown approximately 50 km of cycling facilities on Oshawa. Regional road rights-of-way. Additional boulevard MUPs and paved shoulder bike lanes were added during the period, as well as buffered bike lanes on sections of Kingston Road in Pickering and Ajax, as part of the initial phasing of Highway 2 Bus Rapid Transit (see description below).
2.3.3 Major public transit infrastructure and expansion
Table 2 lists key transit service expansion and infrastructure initiatives since 2006. Service Figure 14: Highway 2 BRT construction east of Brock Road, expansion along the GO Lakeshore East rail Pickering (Source: Durham Region Works Department) line has allowed a growing number of Key transit service expansions include the GO commuters from Durham Region to take bus extension to Peterborough, increased GO advantage of strong job growth in downtown bus service along the Highway 7/407 East Toronto. corridor, and enhancements to service In addition to the launch of the PULSE 900 frequency and duration along DRT Frequent Highway 2 service in June 2013, the Region Transit routes. implemented 10 km of Bus Rapid Transit
17 | Envision Durham 66 Table 2: Key transit expansion and infrastructure initiatives, 2006 to present Year Project Description 2006 Amalgamation of local transit agencies into Durham Region Transit (DRT) 2010 Opening of Whitby GO Station parking garage 2013 Launch of PULSE 900 Highway 2 service by DRT 2013 Midday, evening and weekend GO Train service is increased from every hour to every half-hour on the GO Lakeshore East rail line 2013 Opening of Ajax GO Station parking garage 2014 Opening of Pickering GO Station parking garage 2014 Highway 2 BRT lanes opened (Harwood Avenue to Salem Road) 2015 Expansion of Oshawa GO Station parking (West Lot) 2016 Highway 407/Brock Road Park-and-Ride carpool lot completed 2016 Highway 2 BRT lanes opened (west of Liverpool Road to Glenanna Road) 2016 DRT launches Frequent Transit network 2018 Highway 412/Dundas Street Park-and-Ride carpool lot completed 2018 Introduction of 15-minute midday GO Train service on GO Lakeshore East rail line 2018 Highway 2 BRT lanes opened (through Whites Road, Brock Road and Westney Road intersections 2018 DRT Frequent Transit network expansion (Whites) 2018 Rural Transit On-Demand launched in Townships of Scugog and Uxbridge 2019 Oshawa and Courtice Park-and-Ride carpool lots opened 2019 DRT Frequent Transit network expansion (Harwood, Ritson, Wilson) 2019 Expansion of Rural Transit On-Demand to Township of Brock; service now available seven days a week
Envision Durham| 18 67 3.0 Provincial policies for The ROP provides land use and transportation policies, both implementing transportation planning the requirements of provincial land use plans under the Planning Act, while providing Several provincial policies and guidelines are broader policies for implementation in area being considered in the Envision Durham municipal official plans (refer to Figure 15). review of the Transportation System. As an upper-tier municipality, the Region’s focus is There is also a hierarchy of provincial and on transportation issues that generally apply Regional transportation-related plans and to broader geographic areas, as well as areas guidelines that further articulate and of Regional interest and jurisdiction. implement planning from a Durham However, Regional interests can apply to perspective (refer to Figure 16). This section smaller or even site-specific areas. will focus on the provincial policies and guidelines relevant to transportation planning.
Figure 15: Ontario’s land use planning hierarchy
19 | Envision Durham 68 Figure 16: Key transportation plans and guidelines for Durham Region
3.1 Provincial Policy Statement before other modes of travel. The PPS also supports: The Provincial Policy Statement (PPS) sets the policy foundation for land use planning • Developments which are transit- across Ontario. While the PPS provides policy supportive (where transit is planned, direction for municipalities on planning exists or may be developed). matters supporting the efficient use and • Developments which are freight- management of land and infrastructure, it supportive (particularly within and also includes policies to ensure that between employment areas). necessary transportation, water, sewer and • Connectivity between transportation other infrastructure is available to systems, including across municipal accommodate current and future needs. boundaries. • Planning and protecting for The PPS recognizes that planning for future transportation corridors and rights-of- transportation infrastructure is critical, not way to meet current and future needs, only for moving both people and goods, but which may extend beyond a 25-year time also to support planned growth and horizon. development. In July 2019, changes to the 2014 PPS were To effectively manage growth, the PPS proposed by the Province of Ontario, with supports land use patterns with appropriate the consultation period on the changes densities and a mix of land uses, which ending in October 2019. Through Envision promote transportation choices that increase Durham, the ROP will be updated to address the use of active transportation and transit the policies of the new PPS once finalized.
Envision Durham| 20 69 3.2 A Place to Grow: Growth Plan for directing growth to Major Transit Station the Greater Golden Horseshoe Areas (MTSAs) and other Strategic Growth Areas (SGAs). MTSAs are defined within an Durham Region is part of the Greater Golden approximate 500 to 800 metre walk of a Horseshoe (GGH), which is one of fastest major transit station (the station building or growing regions in North America. The GGH platform itself) along a Priority Transit is forecast to grow from over 9.5 million Corridor, and have specific density targets people and almost 4.6 million jobs (as of depending on the type of transit corridor. In 2016), to 13.5 million people and 6.3 million Durham, the existing GO Lakeshore East rail jobs, by 2041. In order to accommodate this line is designated as a Priority Transit growth, A Place to Grow: Growth Plan for the Corridor in the Growth Plan.5 SGAs include Greater Golden Horseshoe, 2019 (Growth areas that are identified by municipalities to Plan) provides a long-term plan to build be the focus of intensification, such as healthy and balanced communities, while corridors and downtowns with major maintaining and improving our quality of life. opportunities for infill and redevelopment. It The Growth Plan came into effect in May also recognizes infrastructure to support 2019. active transportation, and a coordinated goods movement network linking areas of Part of the solution to address anticipated significant commercial activity to the growth in the GGH lies in the transportation provincial highway network. system, which should provide convenient access to “complete communities” with an The long-term protection of planned appropriate mix of jobs, local services, public transportation corridors, including rapid service facilities, and a full range of housing transit, is also an important policy in the types within short travel distances. In Growth Plan for municipalities to consider, supporting complete communities, the echoing the PPS with specific references to transportation system should reduce the transit and goods movement. need for long distance commuting and support climate change mitigation by 3.3 Metrolinx Regional Transportation increasing the modal share for transit and Plan active transportation. The Metrolinx 2041 Regional Transportation In this regard, the Growth Plan recognizes Plan (RTP) is the GTHA’s plan for an transit as a first priority for major integrated, multi-modal transportation transportation investment, and seeks to align system to serve the needs of residents, transit infrastructure with growth by businesses and institutions to 2041. The RTP
5 In the Urban System Discussion Paper, MTSAs were existing GO Lakeshore East rail line is identified as a identified as locations in proximity to existing GO Priority Transit Corridor, and the extension to stations along the GO Lakeshore East rail line and Bowmanville is identified as a Committed GO Transit planned stations along the GO Lakeshore East Rail Extension. Extension to Bowmanville. In the Growth Plan, the
21 | Envision Durham 70 builds upon the first RTP, entitled The Big • Address traveller needs at the beginning Move (2008), and explores current and and end of the journey (the “first mile” future trends that will influence and “last mile” experience). transportation over the next 25 years, such • Integrate fares and service across the as growth patterns, changing demographics, GTHA and beyond. housing demand and climate change. • Achieve more formal co-ordination of transportation decision-making amongst The RTP supports policies in the Growth Plan different levels of government and transit by setting priority actions around the agencies. completion of key transit projects currently in • Provide sustainable and long-term progress, connecting more of the region with funding tied directly to the RTP. frequent rapid transit, optimizing use of the transportation system, linking transportation and land use, and preparing for changing First mile–last mile describes the challenge technologies and conditions such as climate of getting people to and from transit stations, change. mobility hubs, and fixed-route transit services to and from their home or workplace without the use of a private automobile. Metrolinx 2041 Regional Transportation Alternatives to car trips include a variety of Plan: Vision options such as improved sidewalks and cycling infrastructure, car-sharing, bike “The GTHA will have a sustainable sharing, shuttle buses, taxis and on-demand transportation system that is aligned with services (Source: Metrolinx, 2041 Regional land use, and supports healthy and complete Transportation Plan, Engage: communities. The system will provide safe, www.metrolinxengage.com). convenient and reliable connections, and support a high quality of life, a prosperous and competitive economy and a protected The RTP has identified a Frequent Rapid environment.” Transit Network (FRTN) across the GTHA and extending to Barrie, Guelph, Kitchener and Niagara Falls. FRTN is described by Metrolinx The RTP recognizes the complex nature of as transit service running every 10-15 transportation planning in a large and diverse minutes all-day, every day. The FRTN will be region such as the GTHA. It identifies supported by design elements that enhance challenges and impediments to achieving transit, such as grade separations, separated higher levels of public transit and active lanes and signal priority. These routes include transportation, including the need to: bus rapid transit, light rail transit, GO rail, and • Integrate land use and transportation priority bus corridors and aim to connect planning, decision-making and regionally significant destinations such as investments. Urban Growth Centres, and areas with high • Focus more on moving people, not just population or employment. vehicles.
Envision Durham| 22 71 In Durham Region, FRTN projects are shown 3.4 Greater Golden Horseshoe in Figure 17. These include two “In Delivery” Transportation Plan projects, namely the GO Rail 15-minute Two- Way All-Day service along the Lakeshore East The Greater Golden Horseshoe (GGH) GO line to Oshawa, and the Lakeshore East Transportation Plan is being led by the GO Rail extension to Bowmanville.6 Also Ontario Ministry of Transportation (MTO), included is one “In Development” project, with the aim to develop a long-term the Durham-Scarborough BRT, with the Initial transportation strategy of the GGH region to Business Case completed in spring 2018 and 2051. While still in progress, work to date the preliminary design and TPAP work undertaken as part of the GGH formally launched in May 2019. Other FRTN Transportation Plan has included socio- projects in Durham and across the GTHA are economic, transportation and environmental currently being assessed by Metrolinx to profiles to identify key issues and emerging prioritize the projects and develop trends across the GGH. By the end of 2019, it appropriate timelines for further study, is expected that a 2051 optimal network will construction and funding. be identified, along with a series of policies and priorities, including a vision for beyond Envision Durham will align with the Metrolinx 2071. RTP to help achieve its vision for transit and other modes to 2041. Ongoing work by MTO has indicated that the GGH Metrolinx to prioritize FRTN projects is also Transportation Plan will incorporate planned be reviewed to ensure that its assessment transit and other transportation networks aligns with Durham’s priorities for future included in the Metrolinx RTP. With respect transit projects. to important provincial highway and other MTO projects in Durham, the GGH Discussion Question: Transportation Plan should provide a long- term vision for the future beyond the four- Beyond “In Delivery” and “In Development” year forecast contained in the annual transit projects, which projects do you feel Southern Highways Program. will have the greatest benefit to increase transit use and promote transit supportive development in Durham?
6 Although this project is identified as In Delivery; the information on the current status of the GO Lakeshore alignments and station locations for the GO Lakeshore East Extension is included in the Public Transit East extension are being revisited by Metrolinx. More discussion (Section 5.2.2).
23 | Envision Durham 72 Figure 17: Frequent Rapid Transit Network in Durham Region highlighting projects In Delivery and In Development (Source: Adapted from 2041 Regional Transportation Plan, Metrolinx, Map 6)
3.5 Provincial guidelines 1992. These guidelines can be applied at a regional, area municipal, neighbourhood or 3.5.1 MTO Transit-Supportive Guidelines site-specific scale.
In 2012, MTO released its Transit-Supportive Overall, the guidelines provide a range of Guidelines to assist municipalities and tools to set out how to plan for pedestrian developers in creating transit-supportive environments and connectivity that places. It updated guidelines released by encourage people to walk and take transit. MTO (originally entitled the “Transit- For example, the design and landscaping of Supportive Land Use Planning Guidelines”) in pedestrian routes, and the quality and
Envision Durham| 24 73 placement of adjacent buildings can play a services and active transportation key role in creating walkable and functional connections can be provided. spaces necessary to support pedestrian travel and in turn, opportunities for The guidelines focus on all modes of accommodating higher order transit service. transportation and how they all connect to transit, such as transit customer amenities, The guidelines include best practice urban design, land use mix, parking approaches for designing transit stops and management and station design. associated amenities to support better transit experiences. The guidelines also Within Durham, four Mobility Hubs were provide approaches to measure the impacts identified in the Mobility Hub Guidelines: of improvements on transit service changes to monitor their effectiveness. • Downtown Pickering Urban Growth Centre (UGC). The 2012 guidelines helped to “move the • Seaton (at the terminus of the planned yardstick” in terms of recognizing the Seaton GO Line). integration of land use planning with • Oshawa GO (at the current terminus of planning for transit facilities, infrastructure the Lakeshore East GO Line). and service, and by prioritizing transit as a • Downtown Oshawa (at the planned viable transportation option for both existing Central Oshawa GO Station, immediately and new urban areas. It also recognized the south of the downtown Oshawa UGC). strong linkage between active transportation and transit, and the importance of improving Although the 2041 RTP identifies Mobility the first mile–last mile transit user Hubs, it has only identified them on Priority experience. Transit Corridors designated in the Growth Plan. Accordingly, the only Mobility Hub now 3.5.2 Metrolinx Mobility Hub Guidelines identified in Durham is downtown Pickering, as the remaining Mobility Hubs are not on a In 2011, Metrolinx developed “Mobility Hub Priority Transit Corridor. Guidelines” which provides developers, municipalities, transit operators and other 3.5.3 MTO Freight-Supportive Guidelines key stakeholders with best practices for planning around 51 key transit station In 2016, MTO released Freight-Supportive locations in the GTHA, identified in The Big Guidelines to help planners, engineers, Move (2008). Mobility Hubs act as key developers and other community builders destinations for existing or planned offices, better plan for the needs of goods retail, government services and/or movement. Understanding how to minimize educational facilities. The Mobility Hubs are the negative impacts of freight movement on locations approximately 800 metres around transportation networks, particularly in existing or planned transit stations, where existing and growing communities, is vital to important connections with other transit maintain an efficient transportation system and thriving economy.
25 | Envision Durham 74 Goods movement can be by road, air, rail, provincial and international trade. The water and pipeline. The Freight-Supportive Region also has the Port of Oshawa and St. Guidelines are useful in assisting with Marys Cement as public and private integrating transportation and land use, commercial ports, respectively, and the through site and network design, to improve Oshawa Executive Airport, as important efficiency, safety and reduce conflicts. goods movement facilities (see Section 5.6). Providing for and sustaining efficient supply chains is an important factor for logistics providers and other firms in their decision on where to locate. When supply chains become compromised by traffic congestion or too many competing interests on arterial road corridors, it can cause financial burden to existing firms and detract from future investments. With the increasing level of globalization where goods, services and raw materials come from all corners of the globe, it is important that the ever-changing demands of goods movement on the transportation system are supported.
Figure 18: Oshawa Executive Airport (Source: Durham Region Planning and Economic Development Department)
Creating communities that support all modes of transportation is an important component of the current ROP. The movement of freight is vital for Durham Region’s economy and high quality of life. The provincial highway system, Canadian National (CN) and Canadian Pacific (CP) railways, are important goods movement corridors in Durham, linking inter-
Envision Durham| 26 75 4.0 Durham Region 4.2 Durham Transportation Master transportation policy context Plan
4.1 Durham Region Strategic Plan
Durham’s current Strategic Plan, 2015-2019 recognizes the importance of transportation planning in supporting and fulfilling the vision for growth and development in various communities across the Region. The goals and strategies most relevant to the transportation planning function are identified in Figure 19.
The process for developing a new strategic plan is currently underway. Directions arising Figure 20: Durham Transportation Master Plan, 2017 out of the new strategic plan will be The Durham TMP was approved by Regional considered and incorporated into the ROP as Council in December 2017. It is a strategic appropriate through Envision Durham. planning document identifying policies, programs and infrastructure needs for the Region to 2031, while protecting certain corridors for future transportation needs beyond 2031. The TMP supports planned growth and development consistent with the current ROP, and contains a multi-modal approach in its recommendations and actions, including walking, cycling, public transit, road networks and goods movement.
The TMP provides a foundation for the Envision Durham review of the Transportation System, through its Guiding Principles and Strategic Directions, as noted in the Introduction (Section 1). For each Strategic Direction, a series of goals are outlined, which in turn organize specific actions to implement the TMP (refer to Figure 21). Figure 19: Durham Region Strategic Plan, 2015-2019, transportation-related Goals and Strategies
27 | Envision Durham 76 Figure 21: Transportation Master Plan, 2017, Summary of Strategic Directions and Goals
Envision Durham| 28 77 4.3 Durham Regional Official Plan 11–Transportation System, but there are other transportation related policies supporting the development of healthy and complete communities, and the various components of the Urban System.
4.3.1 Amendment #171 to the Regional Official Plan
One of the first actions implemented from the Durham TMP was an update to the ROP to include recommended network changes, and new criteria for arterial roads where Rapid Transit or High Frequency Bus in High Figure 22: The Durham Regional Official Plan Occupancy Vehicle (HOV) lanes are proposed (Actions #46 and #47). This was achieved The Transportation System comprises one of through Amendment #171, which was the primary components of the ROP, with the adopted by Regional Council in June 2018 Urban System, Greenlands System and Rural and has been in effect since July 5, 2018. In System being the other three. summary, the amendment made the following changes to the ROP: The Transportation System contains specific designations for existing and planned • Approximately 70 additions, changes or facilities, including: deletions to the designations of specific arterial road sections on the Road • Road Network, consisting of freeways and Network maps. a hierarchy of arterial roads, referred to • Updates to the Transit Priority Network as Type A, B and C. map. • Transit Priority Network, with freeway • Updates to the Strategic Goods and arterial road transit corridors, and Movement Network map. commuter rail. • Several changes to policies in the • Strategic Goods Movement Network Transportation System section and in the including roads, railways, airports and Arterial Road Criteria (Schedule ‘E’). ports.
These designations are shown in a series of maps in Schedule ‘C’ of the ROP. Supporting policies for these network elements, and policies for active transportation related to pedestrian connectivity, cycling facilities and trails are also contained in the ROP. Most transportation related policies are in Section
29 | Envision Durham 78 Building upon Amendment #171, Envision review of the Transportation System. For Durham will focus on the actions and reference, the Transit Priority Network in the recommendations in the Durham TMP that southern portion of the Region, as amended have broader implications on other aspects through Amendment #171, is shown in Figure of the ROP, particularly through the Growth 23. Management Study work and additional
Figure 23: Excerpt of the Regional Official Plan Transit Priority Network for the Lake Ontario shoreline municipalities
Envision Durham| 30 79 4.4 Regional Cycling Plan and between area municipalities, and proposed Regional Trail Network or desired linkages. In rural areas, some of these proposed linkages are on rights-of-way The Regional Cycling Plan (RCP), as revised of local roads. and approved by Regional Council in 2012, provides direction for a Region-wide cycling The Share the Road Cycling Coalition is a network that includes recommendations for provincial cycling advocacy organization planning, design and implementation. The working to build a bicycle-friendly Ontario. It focus of the 2012 update was on the works in partnership with municipal, implementation of a Primary Cycling Network provincial and federal governments, the (PCN) and the communications plan. The PCN business community, road safety is comprised of existing and planned cycling organizations and other non-profit groups. facilities that connect major centres, destinations, GO Stations and other transit The Bicycle Friendly Communities program hubs, and external municipalities (City of was launched in Ontario in 2010 by Share the Toronto and Northumberland County) on Road Cycling Coalition with support from the arterial roads under provincial, Regional and Canadian Automobile Association, South area municipal jurisdiction. The RCP also Central Ontario. The program provides recommended a communications and incentives, hands-on assistance and award promotion plan, which is being implemented recognition for communities that actively through the Cycle Durham program. support bicycling. Municipalities are judged in five categories often referred to as the Five “E’s” of being bicycle friendly: Engineering, Over 84 per cent of survey respondents think Education, Enforcement, Encouragement and that providing a Transportation System that Evaluation & Planning. A community must is integrated and reliable for all users and demonstrate achievements in each of the modes is “very” to “extremely important.” five categories to be considered for an (Based on the Envision Durham public opinion survey award. The Award categories are: Bronze, results, 391 respondents). Silver, Gold, Platinum and Diamond.
(Share the Road Cycling Coalition, 2019, The RCP recognizes a Regional Trail Network www.sharetheroad.ca) (RTN), and local routes defined by area municipal active transportation plans or within TMPs, as collectively forming the An update to the RCP is planned to begin in broader cycling network. The RTN also fall 2019 as a separate yet complementary identifies existing off-road public trails for process (Action #32, Durham TMP), which walking, hiking and/or cycling throughout will review the PCN in the context of area Durham. These trails include existing inter- municipal and other plans, the province-wide regional routes such as the Waterfront Trail Cycling Network Study (2018) and Metrolinx and The Great Trail (formerly the Trans RTP Cycling Network for the GTHA (2018). Canada Trail), longer connections within and The RCP update will identify emerging trends
31 | Envision Durham 80 in cycling facility design, community values, 4.5 Arterial Corridor Guidelines public interest, funding and partnerships between different levels of government. It Durham’s Arterial Corridor Guidelines were will also review and refine the phasing approved by Regional Council in 2007 as a approach for constructing bike facilities and toolbox of potential strategies and common address gaps impeding the creation of reference points to be applied when planning Region-wide cycling routes and longer-term and designing arterial roads in the Region. bike facilities. The guidelines provide design criteria for arterial rights-of-way to help balance mobility Many of the Region’s area municipalities and access with liveability objectives, have developed (or are in the process of including: developing) their own active transportation plans, or active transportation components • How arterial roads should evolve over as part of their TMPs. At a local level, both time. infrastructure as well as programming and • Principles to guide the planning of street outreach has been implemented, with Ajax networks and street elements, such as currently recognized with a Silver sidewalks, landscaping, medians, street designation, and Whitby and Oshawa with furniture and signage. Bronze designations, by Share the Road • A range of cross-sections illustrating a Cycling Coalition under the Bicycle Friendly variety of street types, building upon the Communities program. Type A, B and C Arterial designations and showing the diversity of street types that can be achieved. • An outline of the processes under which they can be applied.
The Durham TMP recommends an update to the Arterial Corridor Guidelines to reflect more recent road design standards and guidelines, including cycling and transit facilities (Action #53). Further, an update to the guidelines would aim to contemporize the criteria to reflect “complete streets” principles.
Through Envision Durham, updates to the Arterial Road Criteria and policies in the ROP Figure 24: Cross ride at the Victoria Street/Henry Street will be considered to support the intersection, looking south, Whitby (Source: Durham Region implementation of complete streets. Planning and Economic Development Department)
Envision Durham| 32 81 • Route Alignment–making transit routes Complete Streets are streets that are direct to improve travel time. designed to be safe for everyone: people • who walk, bicycle, take transit, or drive, and Servicing New Growth Areas–making people of all ages and abilities. A complete transit services available as early as streets policy ensures that transportation possible to capture new riders and curtail planners and engineers consistently design auto demand. • and operate the entire street network for all Service Hours–to make transit available road users, not only motorists. Complete to more users by increasing the duration streets offer wide-ranging benefits. They are of service. cost-effective, sustainable, and safe (Source: • Service Frequency–implementing a Complete Streets for Canada, The Centre for minimum 30-minute service in the urban Active Transportation, 2019). area, with 20-minute service in selected grid routes.7 • A High Frequency Network–core transit 4.6 Durham Region Transit strategies routes offering frequent service of 20 minutes or better at all times. 4.6.1 Five-Year Service Strategy The strategy’s High Frequency Network, and Durham Region Transit (DRT) completed a terminals and stations, set the stage for Five-Year Service Strategy in 2016, to further service and infrastructure increase its ability to improve its market investments to move towards the Transit share of travel by growing ridership Priority Network in the ROP. throughout Durham. The cornerstone of this strategy is to provide Durham residents with The strategy’s High Frequency Network, now service that is “available, consistent, direct, referred to as the Frequent Network, can be frequent and seamless,” helping to position accessed by 70 per cent of dwellings within public transit as a preferred option for an 800 metre (10 minute) walk. It accounts Durham residents. To achieve this goal, the for over 60 per cent of passenger boardings strategy proposed targeted service across the network. These routes are improvements to coincide with new commonly easier to access, and are closer to neighbourhoods and developments. These denser residential areas, employment and service improvements are aimed to satisfy commercial areas, and schools including travel demand and address changing travel post-secondary institutions. These patterns by actively targeting new riders as characteristics enable DRT to offer frequent Durham Region’s population grows. service over longer periods of time, while being sustainable to operate. The routes The strategy focused on five service features: currently forming the Frequent Network are illustrated in Figure 25.
7 Based on weekday daytime service but can have greater frequency during the morning and afternoon peak periods.
33 | Envision Durham 82 Figure 25: Durham Region Transit Frequent Network, 2019
The PULSE 900 Highway 2 and 401 Simcoe stations, with an additional four identified for routes provide frequent service of 10 future implementation. These terminals and minutes along their busiest sections, and stations are also included in the Durham TMP operate, at minimum, every 30 minutes and will be considered further as part of the elsewhere on these routes. The PULSE 900 Transit Priority Network review in Section Highway 2 service, launched in June 2013, is 5.2. the base for the future Durham-Scarborough BRT between Scarborough City Centre and downtown Oshawa. Route 401 Simcoe, with plans to upgrade to a PULSE brand in 2020, services the future Rapid Transit Spine between the planned Central Oshawa GO Station and Highway 407.
The Five-Year Service Strategy includes terminals and stations as supporting infrastructure for buses and passengers where numerous routes meet, or where DRT connects with GO Transit rail or bus services. Figure 26: PULSE 900 Highway 2 bus stop, Whitby (Source: DRT) Currently, there are 11 terminals and
E nv i s i o n D ur ham | 34 83 The strategy’s High Frequency Network, and service transit routes provide connections to terminals and stations, set the stage for GO Transit bus service, with connections to further service and infrastructure the Lincolnville GO Station, as well as a direct investments to move towards the Higher DRT connection to the Pickering GO Station. Order Transit Network identified in the TMP. An update to the Five-Year Service Strategy For the Transportation System review, the should launch in late-2019/early 2020. strategy demonstrates that providing effective transit services in Durham Region’s 4.6.2 Rural-North Service Strategy rural areas is important in the development of a Region-wide system that can be accessed The Rural-North Service Strategy, 2016 by all residents. identified transit solutions for the Region’s northern municipalities (Uxbridge, Brock and Currently, the 2019 Review for Rural Areas is Scugog). Providing attractive and efficient being developed, which will update the scheduled transit to these areas is challenged Rural-North Service Strategy. by longer trip distances between urban areas and lower population densities overall.
Figure 27: Queen Street, downtown Port Perry (Source: Durham Region Planning and Economic Development Department)
The strategy takes a three-pronged approach when serving the Region’s large rural area by offering regular service to the urban areas and hamlets in Durham’s north; connector service to neighbouring urban centres such as Newmarket, Orillia and Lindsay; and a “demand responsive” service where customers can book their trips ahead of time by calling a central reservation number in a specific geographical area. The regular
35 | E nv i s io n D urha m 84 5.0 Policy considerations Centre, Regional Corridor and Waterfront Place designations are being considered as The following is a framework for the areas that meet the definition of SGAs. Transportation System review as part of Envision Durham. These themes incorporate Figure 28 shows the Transit Priority Network provincial policies and guidelines as well as designations in the ROP on arterial roads, current ROP policies in their analysis. superimposed on the Regional Centre, Regional Corridor, Waterfront Place and 5.1 Land use and transportation proposed MTSA designations.
The current ROP contains a suite of policies Transit Priority Network on Arterial Roads in that support the integration of land use and the current Regional Official Plan transportation as part of the Regional Structure. Strengthening these policies to Rapid Transit Spines provide dedicated better integrate the land use and transit lanes in most arterial road sections transportation relationship were also and intersect with local transit services. addressed in the Urban System Discussion Paper (released June 2019), and are High Frequency Transit Network consists of elaborated upon in the following sections. buses in planned High Occupancy Vehicle (HOV) lanes, or buses in mixed traffic, with 5.1.1 Transportation planning transit signal priority at major intersections considerations for Strategic Growth Areas and other measures to ensure fast and reliable transit service. Planned HOV lanes Urban Growth Centres (UGCs), Regional may be converted to dedicated bus lanes as Centres, Regional Corridors and Waterfront growth in ridership warrants. Places that are currently designated in the ROP prescribe minimum density targets. Other Transit Connection facilitates longer- These areas are to be easily accessed by distance trips, providing direct links to public transit and to have an extensive Transportation Hubs and Commuter Stations pedestrian network. from smaller urban and rural areas.
The Growth Plan requires the identification The ROP designates the Highway 2 corridor of SGAs in the ROP, as places where (from the Pickering/Toronto boundary to intensification and higher-density mixed uses Highway 418 in Courtice) and Simcoe Street are to be the focus for accommodating (from Highway 407 to Olive Avenue) as Rapid intensification. Both MTSAs and UGCs are Transit Spines. These Rapid Transit Spines are noted as components of SGAs in the Growth planned to include dedicated transit lanes Plan. Since these areas are designated for through large sections, which can be higher-density mixed uses, they must have achieved through the future widening or the specific boundaries outlined in the ROP. As conversion of existing general-purpose lanes described in the Growth Management–Urban for exclusive transit use. System Discussion Paper, the Regional
E nv i s i o n D ur h am | 36 85 Figure 28: The Rapid Transit Spine, High Frequency Transit Network and Commuter Rail designations for the Transportation System with current boundaries for Urban Growth Centres, Regional Centres, Regional Corridors, Waterfront Places and proposed Major Transit Station Areas
Highway 2 and Simcoe Street, along with the Discussion Question: GO Lakeshore East rail corridor and the planned GO Lakeshore East extension, form Should the Region only designate Regional the backbone of the Region’s Transit Priority Corridors adjacent to the High Frequency Network in the ROP. Transit Network? Providing for higher densities along Regional Corridors and especially Rapid Transit Spines 5.1.2 Transit Oriented Development would bring more residents and jobs next to existing or planned frequent transit routes. Transit Oriented Development (TOD) is the However, there are also Regional Corridors clustering of high-density, compact that are currently designated in the ROP that development in proximity to transit infrastructure. The design of TOD places do not correspond to any components of the includes a mix of residential, community use, Transit Priority Network. As noted in the retail and other pedestrian amenities that Urban System Discussion Paper, these support transit ridership, along with good sections of Regional Corridor may not need quality active transportation connections. to be designated in the ROP, as they do not TOD stresses the importance of pedestrian- support a Higher Order Transit function, but oriented streets, places and buildings while lands within them could be identified in local minimizing parking needs. official plans as local centres or corridors. In order to support TOD in SGAs, particularly Regional Centres and Regional Corridors
37 | E nv i s io n D urha m 86 along Rapid Transit Spines, the TMP Discussion Question: recommended the development of TOD guidelines and a corresponding strategy with Should Transit Oriented Development enabling policies in the ROP (Actions #3 and policies and guidelines for Strategic Growth #4). The formulation and application of TOD Areas be tailored to the planned level of guidelines would form an important tool for transit service? ensuring that SGAs develop in a manner to support transit use in the near and long-term as TOD places. 5.1.3 Supporting development in Major Transit Station Areas In 2010, as part of the Durham Long Term The Growth Plan requires MTSAs to be Transit Strategy Study (LTTS), a TOD Strategy planned as places that will achieve a higher was drafted to support the Higher Order density mix of uses (where appropriate) Transit network recommended through the within an approximate 500 to 800 metre study, which included a set of potential radius of the transit station itself, guidelines for 39 TOD places identified across the Region. Although the TOD Strategy was representing a 10-minute walk. MTSAs are not officially endorsed or approved by intended to become areas where transit, Regional Council, it has been used as a active transportation and vehicular access is resource when reviewing development in high demand due to the transit station, but applications and other projects. can become distinct TOD places and destinations themselves. As such, supporting development of MTSAs will require a review The Long Term Transit Strategy (LTTS), 2010, of current approaches for planning new described a vision for public transit in intersections, accesses and active Durham Region. It presented a transportation connections to these areas. comprehensive long-range vision of the Region’s rapid transit network and identified major transit corridors and service levels for higher order service throughout Durham Region. The LTTS provided valuable input to the development of the 2031 transit network proposed in [the] TMP (Source: Durham Transportation Master Plan, 2017).
Through Envision Durham, an update to the TOD Strategy is being considered to articulate transit-oriented principles, policies and practices for new development. Figure 29: San Francisco by the Bay condominium development, Pickering (Source: Durham Region Planning and Economic Development Department)
E n v i s i o n D u r h am | 38 87 development, to ensure convenient Discussion Question: pedestrian access and supporting Do you support Major Transit Station Areas infrastructure is specifically addressed as part having specific transportation-related of the development review process. This can policies to support their development as include the provision of public walkways, or Transit Oriented Development places, easements over common element areas in similar to those already applied to Regional condominiums for public-use walkways, to Centres? provide access between the arterial road and the adjacent neighbourhood.
5.1.4 Transit-supportive development
The ROP contains policies that are consistent with transit-supportive development for urban areas. While TOD and transit- supportive development are similar concepts, the latter is generally applied to areas outside of SGAs that are not planned as areas of significant intensification. Pedestrian connectivity within and between neighbourhoods, a grid system of roads and restricting reverse-lot frontage (where the backyards and rear fences of properties face the arterial road) are examples of design measures that support access to any type of transit route. These measures help increase the potential “walkshed” or geographical area from which transit users can walk or Figure 30: Walkway connection between a park and an bike to the nearest bus stop within five to 10 arterial road within a condominium townhouse minutes, making transit service more development, Whitby (Source: Durham Region Planning and accessible to residents. Economic Development Department)
Where High Frequency Transit Routes exist or Discussion Question: are planned, additional ROP policies for transit-supportive development in local What up-front considerations should the centres or corridors identified in area Regional Official Plan provide with respect municipal Official Plans would benefit overall to encouraging transit-supportive transit use. For these areas, as well as areas development outside of Strategic Growth along arterials that are not High Frequency Areas? Transit Routes, transit-supportive development could incorporate provisions between transit stops and adjacent
39 | E nv i s io n D urha m 88 5.2 Public transit Discussion Question:
The ROP provides a strong policy foundation Do you support a new Transit Hub for the designation of the Transit Priority designation and policies as part of the Network. Through Envision Durham, Regional Official Plan? strengthening the transportation and land use relationship can be achieved, with public transit being critically important in 5.2.2 GO Lakeshore East Extension supporting intensification in SGAs and In June 2016, the easterly extension of GO supporting transit use. Train service to Bowmanville was announced by the provincial government for completion 5.2.1 Other Transit Hubs in fall 2024. The announcement indicated The current ROP designates Transportation that four new stations would be constructed Hubs and Commuter Stations (refer to Figure (Thornton’s Corners–B1, Central 23). Oshawa/Ritson Road–B2, Courtice–B3 and Bowmanville–B4). In addition to MTSAs, there are other locations in the Region that are transit focal In May 2019, Metrolinx announced that it is points. The Harmony terminal at Taunton considering four alignment options, as Road, Oshawa Centre terminal and Ontario follows (refer to Figure 31): Tech University/Durham College North • Campus terminals are notable examples. Option 1 reflects the preferred alignment from the EA study, with the planned The Durham TMP and DRT Five-Year Service station locations on the CP Rail line (that Strategy identify 11 existing and proposed is, north of Highway 401). transit station and terminal locations. The • Option 2 resembles Option 1, except that TMP recommends protecting for transit the CN to CP Rail connection across station and terminal needs early in the Highway 401 uses the existing General planning process (Action #13). These Motors spur line. locations facilitate transfers between • Option 3 uses the existing CN Rail different transit routes and/or services and alignment south of Highway 401, without could support complementary TOD in certain any connection to the CP Rail line. locations. Such a designation could also be • Option 4 uses the existing CN Rail supported by policies emphasizing good alignment through Oshawa, connecting active transportation connectivity, passenger across Highway 401 to the CP Rail line amenities and prioritization for buses to and near the Oshawa/Clarington boundary. from these sites, encouraging use and enhancing the first mile–last mile experience Following the Metrolinx announcement, for transit users. Regional Council and Whitby, Oshawa and Clarington all endorsed Option 1.
E n v i s i o n D u r h am |40 89 Figure 31: GO Lakeshore East Extension, showing the four alignment options being reviewed by Metrolinx (Source: Metrolinx, May 2019)
A revision to the approved alignment of the planning and land acquisition has already GO Lakeshore East Extension would occurred at certain locations along the undermine the Region’s planned land use Option 1 route. structure and ability to fulfill intensification requirements as set out in the Growth Plan. It Downtown Oshawa is designated as an UGC also has broad implications for connectivity in the Growth Plan, and the proposed MTSA of the future stations to the Transportation for the Central Oshawa GO Station is System. adjacent to the UGC. The MTSA also coincides with part of the Downtown Oshawa Based on the TMP and the Region’s capital Regional Centre. Connectivity and proximity budget, Regional road infrastructure to Higher Order Transit, as well as improvements have occurred and are being opportunities to redevelop existing planned in anticipation of the committed underutilized areas, advances provincial 2024 delivery of Option 1. A change from planning policy for TOD in this location. Option 1 would result in fewer and more isolated transit stations, making station For Bowmanville, the proposed station as the connectivity for transit and active eastern terminus of the extension is within transportation more challenging, with the Bowmanville West Regional Centre. relatively few redevelopment and community Existing plans and policies in this area improvement opportunities. Detailed includes a high degree of intensification,
41 | E nv i s io n D urha m 90 mixed-use development and place-making would stretch across the GTHA. MTO has consistent with a MTSA. been planning for and protecting the required land for the 407 Transitway over the The proposed stations at Thornton’s Corners last 30 years. The protection for the 407 and Courtice also provide significant Transitway was included as part of the opportunities for higher density mixed-use Highway 407 East Individual EA and development, with larger development sites Preliminary Design Study in 2009 (Highway and few constraints to develop as MTSAs. 407 East EA study), which also included protection for the sections of Highways 412 and 418. A concept design for the 407 Transitway was included as part of the EA study, including future station locations and extents.
Figure 32: Planned GO train station in Bowmanville (Source: Durham Region Planning and Economic Development Department)
Metrolinx is currently preparing an initial business case, which will recommend the preferred option that will be advanced for further EA study and design. Figure 33: Excerpt of preliminary design drawing showing the proposed 407 Transitway station at Baldwin Street (Source: 407 East Individual Environmental Assessment and Given the land use and transportation Preliminary Design Study, 2009, Appendix D–Recommended planning implications for any changes to the Design Plates) alignment and station locations, work being conducted by Metrolinx on the initial In December 2016, MTO completed the 407 business case is being closely monitored by Transitway-Kennedy Road to Brock Road the Region, including for Envision Durham. TPAP EA Study. Two other EA studies were also conducted for the central and western 5.2.3 407 Transitway in Durham portions of the 407 Transitway. The EA study identified a preliminary design for a BRT The 407 Transitway is a planned high-speed facility on its own right-of-way (separate road public transit facility on a separate right-of- within the Highway 407 corridor). The EA way within the Highway 407 corridor that study also included station locations adjacent
E n v i s i o n D u r h am |42 91 to specific highway interchanges, future airport and nearby designated accommodating transfer facilities with GO employment lands in Pickering. Transit bus routes, other transit agencies such as DRT and commuter parking areas. 5.3 Active transportation
Protection for possible conversion to Light The ROP currently supports the development Rail Transit (LRT) was considered as part of of different mobility options for Durham the EA study. A phased approach for residents, including walking and cycling, and implementing the 407 Transitway was also establishing sustainable transportation outlined in the study, including buses in initiatives that respect natural, social and mixed traffic on Highway 407 with strategic cultural environments. The ROP includes the commuter station locations at interchanges, goal of providing for an integrated, safe, before a dedicated transitway facility is efficient and reliable Transportation System constructed. for all users, regardless of travel mode. Active transportation also plays a part in most The ROP currently contemplates the transit trips (for example, walking to a bus implementation of the 407 Transitway. stop), and ensuring these are attractive, safe Highways 407, 412 and 418 are designated in and efficient will provide for a better the ROP as Freeway Transit routes in the transportation system. Transit Priority Network schedule. 5.3.1 Planning for all road users Existing GO Transit bus service on the Highway 7/407 corridor (the 407 East bus) The Level of Service (LOS) refers to the connects Durham residents to Markham, quality of the road environment for drivers, Richmond Hill, the Highway 407 bus terminal including factors such as intersection delay, and beyond to the Spadina Subway congestion and average vehicle speed. A extension. The Greater Toronto Airports Multi-modal Level of Service (MMLOS) Authority (GTAA) and Metrolinx are also expands the scope of the traditional LOS planning a Regional Transit Centre at Lester measure to consider the experiences of all B. Pearson International Airport to serve the road users, rather than focusing on drivers international airport and surrounding (and their passengers). For example, a employment area. The 407 Transitway would pedestrian LOS considers the quality of the be beneficial for Durham, and the GTHA as a road environment for those on foot by whole, to connect to the Pearson Transit Hub factoring in things like the presence of for commuting to work and travel. sidewalks, signalized intersections, trees and landscaping features. The Durham TMP Through Envision Durham, the ability to recommends adopting a MMLOS framework elevate the importance of the 407 Transitway to assess road design and rights-of-way for as a future BRT or LRT facility will be road expansion or reconstruction projects, reviewed, given its potential to provide a and Transportation Impact Studies (TISs) for rapid transit connection to York Region, the development review (Action #52). planned Pearson Transit Hub, and to serve a
43 | E nv i s io n D urha m 92 When designing for the experiences of all Discussion Question: road users, intersection spacing is a factor that must be carefully considered. Roads How can Regional Official Plan policies with fewer intersections may create a higher support planning for all road users when LOS for drivers but may, in turn, increase assessing new developments and vehicle speeds and reduce the pedestrian or reconstructing or building new roads? bicycle LOS. Fewer opportunities to cross or turn can also impact how appealing a given road section is to a pedestrian or cyclist. An 5.3.2 Cycling and trails increase in the number of crossings, provided The PCN in the RCP is part of a broader, they are safe and appropriate for the connected system of cycling infrastructure, function of the road and development comprised of the Provincial Cycling Network context, offers those using active modes with as part of #CycleON–Ontario’s Cycling more route options. Strategy, the Metrolinx RTP cycling network for the GTHA, and networks developed by the area municipalities in Durham.
About 78 per cent of survey respondents think that offering a variety of mobility choices (such as transit, cycling, walking, etc.) for all Durham Region residents is “very” to “extremely important.”
(Based on the Envision Durham public opinion survey results, 390 of 391 respondents).
Figure 34: Boulevard multi-use path, Garden Street, Whitby The RTN and Greenbelt Cycling Route will (Source: Durham Region Planning and Economic Development Department) also be integrated with the PCN, pending the update to the RCP in 2020. The Region’s Adopting an MMLOS framework in Durham cycling network and these plans aim to would allow for a more holistic consideration create a connected, bike-friendly Ontario. of how all road users experience the Region’s road network. As the Region seeks to To support the construction of cycling promote transit, cycling and walking as viable infrastructure in the RCP, the Durham TMP alternatives to travelling by car, through identified a Short-Term Cycling Network. The Envision Durham, the ROP should be network consists of cycling facilities that reviewed to enhance policies in support of should be constructed within the next 10 this framework. years to improve connectivity across the Region. Along with projects identified in the Region’s capital road program and nine-year forecast, the network recommended cycling
E n v i s i o n D u r h am |44 93 facilities that should be constructed as and promoting the number of km of active “standalone” projects–those not already transportation infrastructure installed associated with a road reconstruction or annually could be one method for achieving widening project–in the next 10 years. this goal. In a similar vein, the Cycling Communications Strategy (Cycle Durham) In spring 2017, the province announced the recommends publishing a progress report Ontario Municipal Commuter Cycling (OMCC) every two to three years, documenting new Program as a four-year (2017-2020) program infrastructure, programs and services, and to invest in commuter-based cycling reporting on shifting travel patterns. The infrastructure. Funded through the Ontario's consistent documentation of progress is an former carbon tax cap and trade system, the important component of growing support for OMCC program was established to curtail cycling. Given that infrastructure alone will commuting by car and reduce greenhouse not be responsible for the rise in cycling gas emissions produced by the transportation across the Region, documenting the sector. The Region and several area successes and lessons learned from programs municipalities applied and received funding and services offered is essential. from the program, which is helping to advance the construction of cycling 5.3.3 Connecting and using public lands infrastructure up to year-end 2020 to implement the RCP. Unfortunately, the The RTN forms a component of the Region’s OMCC program was cancelled in July 2018 active transportation and relies on making after the initial year of funding. connections using publicly owned lands. These public spaces include parks, The OMCC program helped establish a conservation areas, open space lands such as collaborative approach to providing cycling creek valleys, road rights-of-way and hydro infrastructure across the province. To date, corridors. no replacement program has been established by the province to advance the For example, the “Meadoway” is a 16 km implementation of cycling infrastructure. multi-use path in the City of Toronto along Consequently, municipalities including the Gatineau hydro corridor, from the Don Durham will have to fill the funding gap for River ravine to Rouge National Urban Park. the Short-Term Cycling Network projects. The Meadoway reimagines the corridor as a Envision Durham will consider the inclusion connected green space including a linear of provincial cycling initiatives, with more MUP with connections to the surrounding emphasis on collaboration between different areas. This initiative is currently being led by levels of government for cycling and trail the Toronto and Region Conservation improvements. Authority in partnership the City of Toronto, Hydro One and the W. Garfield Weston Support for monitoring and promotion of Foundation. cycling in Durham is noted in the ROP; however, it does not provide specific direction on what this entails. Monitoring
45 | E nv i s io n D urha m 94 Durham to link the Waterfront Trail with the Greenbelt Cycling Route.
The Waterfront Areas of Lake Ontario, Lake Scugog and Lake Simcoe shall generally be developed as “people places” with the exception of significant natural areas, which will be protected in their natural states. Each waterfront shall be a continuous system, penetrating and linking the urban and rural areas. Where access to the waterfront is not desirable or in the public interest, Waterfront Links are provided (Source: Regional Official Plan, policy 10C.1.1).
The RTN and RCP connect to Waterfront Figure 35: Off-road multi-use path, Veterans Memorial Park, Areas in Port Perry and Beaverton, on Lake Uxbridge (Source: Durham Region Planning and Economic Development Department) Scugog and Lake Simcoe, respectively. The RCP also connects to the Port Perry There is an opportunity to extend the Waterfront Trail via Reach Street and Simcoe Meadoway easterly into Durham Region on Street. Given the importance of the the same hydro corridor as a valuable east- Waterfront Areas as destinations for Durham west connection for Pickering, northern Ajax, residents and visitors alike, the importance of Brooklin and north Oshawa. A Durham providing active transportation connections Meadoway would not only enhance the RTN, to, from and within them should continue to but also support opportunities for be recognized and enhanced through the complementary community uses including ROP. urban agriculture, small gardens, parks or naturalization efforts.
The Waterfront Trail is a key component of the RTN, connecting the Waterfront Areas in the ROP within the Lake Ontario shoreline municipalities in Durham. It connects Durham to the GTHA and beyond along Lake Ontario and the St. Lawrence River. The Waterfront Trail, and Greenbelt Cycling Route, are managed by the Waterfront Regeneration Trust. Currently, the Waterfront Regeneration Trust is looking at Figure 36: Waterfront Trail, Ajax (Source: Durham Region potential north-south connector routes in Planning and Economic Development Department)
E nv i s i o n D ur ham | 46 95 The ROP includes right-of-way criteria for Discussion Question: Type A and Type B arterials corresponding to How should the Regional Official Plan Rapid Transit Spines (such as sections of recognize or plan for enhanced trail Highway 2 and Simcoe Street) or HOV lanes connections as key active transportation which could be converted into dedicated bus linkages within hydro corridors and lanes over the long-term. Waterfront Areas? Summary of current arterial road 5.4 Roads and corridor protection designations in Regional Official Plan Type A Arterials are mostly flow-oriented The ROP designates roads, transit priority with operating speeds of 70-80 km/h and and strategic goods movement networks. right-of-way widths of 36-45 m providing Existing and future arterial roads are connections between the Durham Region identified, along with future freeways and municipalities and areas not served by interchanges, using alignments that reflect provincial highways (examples include, current EA studies or area municipal Official Taunton Road, Lake Ridge Road, Bayly Street, Plans. In addition, a hierarchy of transit Bowmanville Avenue). corridors is identified through the Transit Priority Network. The Strategic Goods Type B Arterials are intended to move a Movement Network reflects key provincial lower volume of vehicles with operating highway and Regional road sections of speeds of 60-80 km/h and right-of-way preferred haul routes for year-round use and widths of 30-36 m (with certain exceptions connects major generators of truck traffic. for accommodating rapid transit lanes). They Building on this foundation, however, are provide secondary connections through the additional considerations described below. southern municipalities and provide access to the urban areas and hamlets in northern 5.4.1 Right-of-way map schedule in Durham Region (examples include Rossland Regional Official Plan Road, Simcoe Street, Liberty Street, Reach To improve right-of-way requirements for Street) future Class EA studies for road widenings or Type C Arterials are the most access-oriented reconstruction, as well as to help in the with operating speeds of 50-60 km/h and review of development proposals adjacent to right-of-way widths of 26-30 m. Type C arterial roads, the TMP recommended that a Arterials are primarily located within right-of-way map be added to the ROP designated urban areas (examples include (Action #49). This map would identify the Valley Farm Road, Williamson Drive, Garrard required right-of-way widths based on Road, Longworth Avenue). ultimate widening needs for specific arterial road sections. (Adapted from Durham Transportation Master Plan, 2017)
47 | E nv i s i o n D urha m 96 Consideration for intersections for auxiliary facilities. Since the Arterial Corridor lanes, transit stops/shelters, cycling facilities Guidelines were prepared, updated design and potential storm water management guidelines for roads and cycling facilities have measures that support low impact been developed by various agencies, as well development would inform the right-of-way as “in house” Regional guidelines including determination. Also, provincial studies such those for bus stops and intersection as the Metrolinx RTP or the GGH treatments for cycling. Specific items for Transportation Plan could also inform right- complete streets could be reflected as part of of-way needs, particularly for the provincial the new ROP. highways (as undivided highways are designated as arterial roads in the ROP). 5.4.3 Corridor protection and the Class Environmental Assessment process
The ROP identifies future arterial road corridors, some of which have not proceeded to a municipal or provincial Class EA study. Protecting for these corridors over the long- term is important component of the ROP. To address the protection for certain road corridors, the TMP has recommended feasibility studies for the following road links, where unusual engineering issues or Figure 37: Recently constructed BRT and buffered bike lanes environmental impacts are anticipated as on Kingston Road, Pickering (Source: Durham Region Works significant factors affecting their potential Department) construction:
Discussion Question: • Ravenshoe Road extension to Highway 7 and Highway 12. Would providing clearer future right-of-way • Clements Road connection across Duffins requirements for specific sections of arterial Creek. roads in the Regional Official Plan be • Consumers Drive extension from beneficial for development application Thornton Road to Laval Drive/Fox Street. review or Class Environmental Assessment • Extending Shirley Road between Highway studies? 7/12 and Simcoe Street. • Courtice Road connection to Enfield Road 5.4.2 Complete streets approach at Taunton Road.
As noted in Section 4.5, the TMP Through Envision Durham, revisions to the recommends updating the Arterial Corridor ROP may be considered to recognize these Guidelines, 2007, to reflect complete streets feasibility studies, consistent with the TMP. principles and recent best practices for design, particularly for transit and cycling
E nv i s i o n D ur ham | 48 97 The province is currently reviewing the Discussion Question: Environmental Assessment Act to streamline the requirements for different types of EA Is it appropriate that the Regional Official studies. With the proposed changes that may Plan address an integrated Class come forward from these EA reviews, Environmental Assessment and Planning Act Planning Act processes may pre-approve the process in new growth areas to optimize the alignments of arterial (and longer collector) alignment and design for arterial roads? roads in new growth areas. The Planning Act process, however, may not identify the most suitable alignment from an environmental or 5.4.4 Road safety engineering perspective, compared to the Durham Vision Zero is the name given to the four-phase Municipal Class EA process in Region’s Strategic Road Safety Action Plan, planning for new roads. An integrated which was officially launched by the Region Planning Act and Class EA process would in May 2019. Based on the Swedish road examine alternatives for an entire new safety concept of “Vision Zero”, Durham section of arterial road in a comprehensive Vision Zero adopts the view that no loss of manner, for example, instead of just for an life is acceptable due to a motor vehicle arterial road section within the boundary of a collision. The focus of this plan is to specific development area. ultimately eliminate fatal and injury collisions on roads in Durham Region, beginning with a Class Environmental Assessment (Class EA) specific goal of a 10 per cent reduction in means a planning process, approved under these collisions between 2019 and 2023. the EA Act for a class or group of undertakings. Projects included in the Class EA may be implemented without further approval under the EA Act provided the approved Class EA planning process is followed (Source: Municipal Engineers Association, Municipal Class Environmental Assessment, October 2000, as amended in 2007, 2011 and 2015).
If the Class EA requirements are superseded by the Planning Act process, the Region will Figure 38: Durham Vision Zero logo consider policies that support the application of an integrated Class EA and Planning Act Through Durham Vision Zero, several process for these new growth areas. emphasis areas and accompanying action items are identified, laying out strategies for creating safer roads for all. The Durham Vision Zero work will be reviewed for any potential implications on Transportation
49 | E nv i s i o n D urha m 98 System policy with regards to safety, TMP also recommends mode share targets particularly for active transportation and by 2031 to not only reduce auto congestion, aspects of the Arterial Road Criteria in the but also to reduce the per capita impacts of ROP. the transportation sector on overall GHG emissions. The purpose of the TMP targets is 5.4.5 Climate change adaptation and to monitor how the development of mitigation complete communities, as emphasized by provincial policies in the Growth Plan, and The Durham TMP recognizes that both more compact built form can influence the adapting Regional road infrastructure to ways in which Durham residents travel. Mode climate change and mitigating the impacts of share targets are outlined based on climate change on Regional roads, are generalized land use categories, with UGCs important considerations in keeping the and Regional Corridors on the Rapid Transit Transportation System functioning. network having the highest transit, walk and cycle targets. A key consideration in adapting Regional road infrastructure to projected climate Envision Durham’s Climate Change and conditions, such as more extreme storm Sustainability Discussion Paper emphasizes events and warmer temperatures, is to reducing auto travel through developing prevent or reduce travel disruptions. The complete communities, Transportation Durham Community Climate Adaptation Plan, Demand Management (TDM) and the 2016 recommends programs for resilient provision of active transportation asphalt, road embankments, and adaptive infrastructure. With the 2031 Preferred culverts and bridges to protect Regional Network in the TMP, achieving the mode Transportation System assets. Another way share targets would enable growth in vehicle- of adapting to climate change impacts on kilometres travelled by auto by 37 per cent Regional roads and the overall for roads, and by 260 per cent for DRT transit Transportation System is to support low passenger-km, from 2011 levels. This impact development storm water compares with 2011-2031 population and management techniques to reduce the employment growth forecasted at 49 per amount of runoff going into the storm sewer cent and 55 per cent, respectively.8 system. While storm water management is Accordingly, the number of auto trips per largely a responsibility of the area person are forecasted to decline, while municipalities, the Region manages storm transit trips are expected to increase per water on the Regional road network. person, as the Region grows. Related to mitigating climate change impacts on Regional road infrastructure, the Durham
8 Durham Transportation Master Plan, 2017. Vehicle- each trip. Transit passenger-km travelled is the kilometres (km) travelled is the cumulative total of the cumulative total of the number of transit trips number of auto trips multiplied by the distance for multiplied by the distance for each trip.
E nv i s i o n D ur ham | 50 99 Adapting to and mitigating impacts on the 5.5.1 Transportation Demand Management Transportation System from climate change for employers reinforces the goals and actions to reduce auto trips, plan for long-term infrastructure In 2007, Smart Commute Durham was needs, and support intensification and a established in partnership with Metrolinx, mixture of uses in the Region’s urban areas. which developed a workplace-based TDM program for employers in the Region. Smart 5.5 Travel choices Commute Durham is one of 13 similar transportation management associations Implementing TDM programming is across the GTHA.10 supported in the ROP, which recommends introducing trip reduction strategies such as Currently, TDM policies in the ROP are providing cycling facilities, designated focused on employer-based programming. carpool parking and options for vanpooling.9 The ROP supports TDM as part of an effort to Through Envision Durham, there may be curb single-occupant vehicle travel, and to opportunities to provide stronger support for promote alternatives to help reduce peak Regional action and advocacy on TDM, along period travel. It encourages employers to with creating more travel choices for more promote programs intended to reduce residents using the Transportation System. dependency on motor vehicles through strategies including providing DRT passes, ridesharing and vanpooling programs, Transportation Demand Management (TDM) carpool spaces, alternative work hours, strategies are key to unlocking the benefits of telecommuting (such as working from home) new investments in transportation and developing facilities that support cycling. infrastructure and services, and to making the best use of the transportation system’s The Durham TMP recommended expanding available capacity. TDM uses a variety of the scope of TDM in Durham to further tools including carpooling and vanpooling, engage employers through pilot projects, and HOV lanes, telework and park-and-ride to expand TDM programming to the broader (Source: Metrolinx, 2041 Regional community (Action #70). Transportation Plan).
9 A vanpool is a vehicle used specifically for the purpose of shared commuting, and can be owned or 10 In May 2019, Metrolinx indicated that it will no leased by an employer for the benefit of their longer be supporting the Smart Commute program or employees who drive and ride in the van (Source: the 13 transportation management associations Smart Commute North Toronto-Vaughan (including Smart Commute Durham) that administer https://smartcommute.ca/north-toronto-vaughan/). the program. Durham Region (and the other associations) is currently investigating how it will maintain the program in-house.
51 | E nv i s i o n D urha m 100 5.5.2 Transportation Demand Management 5.5.3 Active and sustainable school travel development guidelines Supporting TDM for the Region’s younger The Durham TMP recommends that TDM residents is also supported by the Durham development guidelines be created to ensure TMP, which recommends that the Region that when proposals for new development establish an “active school transportation are reviewed, cycling facilities, pedestrian portfolio” (Action #76). and transit access to and from the site are constructed in a manner that supports non- Active and Sustainable School Travel (ASST) auto modes, (Action #1). encourages student travel to school actively and/or using other sustainable modes such The ROP could also contain policies towards as transit, carpooling or school busing for creating and regularly updating TDM longer distances. Stemming from the Durham development guidelines. Supporting policies TMP recommendations to work with partners for these guidelines would promote a more to develop an Active School Travel Strategy, rigorous and consistent approach to the Region is leading various initiatives to reviewing site-specific design for new increase ASST. Recently, the Region was developments. They could articulate how awarded funding through the Ontario Active TDM measures such as bike parking, end-of- School Travel fund to carry out ASST trip facilities (bike lockers and showers at programming at eight schools across workplaces, for example) and better Durham. connections to transit stops should be enabled. The development review process can also support ASST by evaluating pedestrian access Related to TDM development guidelines, the for planned residential units to new school TMP also recommends a parking strategy for sites within a five or 10-minute walk, in a the Region in “strategic nodes and corridors” similar manner to monitoring access to (Action #80). A parking strategy could aim to transit stops. identify areas where parking supply should be optimized to support transit and non-auto Discussion Question: travel, in consultation with the area municipalities. Are there aspects of Transportation Demand Management beyond employer and school Through Envision Durham, supportive policy trips, and review of development language around TDM development applications, that should be addressed in guidelines and a Regional parking strategy greater detail in the Regional Official Plan? will be considered as a means to further to support TDM in the Region. 5.5.4 Commuter lot program
Commuter lots include carpool parking lots that may also be used as transit stops or transfer locations, as well as lots primarily
E nv i s i o n D ur ham | 52 101 used as park-and-ride facilities for accessing higher order transit service (such as the GO Train). Most of the existing commuter lots in Durham are purpose-built and owned by the province, consisting of MTO carpool lots and Metrolinx park-and-ride parking garages and lots.
Two commuter lots are owned by the Region (one at Simcoe Street/Shirley Road in Scugog and one at Simcoe Street/Cameron Street in Brock). These lots were built to establish commuter parking that was informally occurring on vacant Regional properties. Figure 39: Carpool parking spot sign, Smart Commute Durham While the Region does not have a formal role in the provision of purpose-built commuter The use of public facilities for carpool spaces lots, the Small Urban and Rural Carpool Lot can supplement the existing purpose-built Program was created as part of Smart commuter lots in the Region’s small urban Commute Durham to provide commuter and rural areas and can support HOVs. In parking at convenient locations across the addition, advocacy for the Province of Region. The program involves working with Ontario to continue to implement purpose- area municipalities to enhance carpooling in built commuter lots for carpooling, and park- underserved areas of the Region, and to and-ride for access to GO Transit bus service, promote use of commuter parking by sharing is another important measure for reducing information with the public. This program single-occupant vehicle commuter trips. provides an opportunity for residents in less As a TDM measure, encouraging HOVs and transit-connected areas of Durham, for use of designated carpool spaces is in the whom walking or cycling is also not an current ROP. Through Envision Durham, the option, to commute more sustainably. To opportunity to further develop the Region’s date, the program has been implemented in role in the provision of carpool spaces will be Uxbridge, Brock, Scugog and Clarington, and considered. has designated carpool spaces at various public facilities (such as arenas and community centres) along with promotion of Discussion Question: purpose-built commuter lots such as at GO Stations or MTO carpool lots. What should the Region’s role be in supporting carpooling, and in what locations would this be most appropriate?
53 | E nv i s i o n D urha m 102 5.5.5 Age-friendly communities Through Envision Durham, age-friendly communities and the promotion of active In Durham Region, the walking network transportation for all users will be reviewed should be accessible, connected, safe and from a broader active transportation well-lit with direct routes to destinations of perspective. all kinds, for persons of all ages and abilities. The Durham Region Strategic Plan speaks to 5.5.6 Emerging technologies the overall transportation network, providing direction to ensure that infrastructure is Recent technological advances in functional, integrated, reliable and barrier- transportation are transforming travel. Paid free (refer to Figure 19). Curb-cuts, tactile ridesharing services such as Uber or Lyft are a walking surface indicators and other well-established component of the market. accessibility measures are being Referred to as part of Mobility as-a-Service implemented for new and reconstructed (MaaS), paid ridesharing, along with bike intersections to ensure that pedestrians can sharing and car sharing, enable people to move more freely across the Region. Through access on-demand travel without owning a the ROP, urban areas are intended to be car. This forms part of the “sharing economy” developed in a pedestrian-oriented manner, brought about by the advance of mobile so that these spaces are comfortable and applications and wireless communications. accessible to those on foot. Technological advances in how people access In 2017, the Region completed its Age- travel information, such as through their Friendly Durham Strategy and Action Plan, smartphone or web-based applications, can which focused on adults aged 55 and older. It provide travellers with real-time traffic or is geared toward providing a strong and vibrant construction information (such as through community where older adults remain active, the Region’s Traffic Watch map online), or enjoy better health, and are more engaged and through “plan your trip” applications for informed. This plan contains a series of transit such as Metrolinx’s Triplinx (also actions designed to enhance transportation hosted by DRT). These tools help residents infrastructure and services, to address gaps make better trip making decisions to suit and improve the transit passenger their needs. experience. Several actions pertain to active transportation, not only by recognizing Electric Vehicles (EVs) have been part of the pedestrian access to transit, but also by marketplace for several years and require providing transportation options for bikes, supporting infrastructure such as changing scooters and walking. With an aging stations. Automated Vehicles (AVs) and population and a tendency for fewer seniors Connected Vehicles (CVs) have the potential to drive compared to other adults, to significantly change how we travel day-to- supporting active transportation modes with day. CVs can optimize how different vehicles older adults in mind is an important interact on the road network, potentially consideration for the Transportation System. reducing congestion and increasing road safety.
E nv i s i o n D ur ham | 54 103 Autonomous Vehicles (AVs) are capable of 5.6 Goods movement interpreting the world around them and The ROP includes the Region’s Strategic navigating roads without human Goods Movement Network (SGMN) which intervention. identifies preferred haul routes planned to Connected Vehicles (CVs) are vehicles that accommodate commercial vehicles on a year- are connected to infrastructure, mobile round basis, linking major generators of truck devices and other CVs. They are capable of traffic. sharing information with each other to Goods movement is not only an integral part optimize their function and performance. of employment area lands to support (Source: Adapted from Durham industry, but it is also linked to other land Transportation Master Plan, December 2017) uses such as retail and even residential uses for deliveries. In residential areas, with increased online shopping, delivery trucks are AVs can enable and free up occupants from becoming more prevalent on local streets. driving (once cars are fully autonomous) if Through Envision Durham, the provincial used in conjunction with MaaS. AVs have the guidelines will be examined with respect to potential to optimize use of the Region’s land use planning and development review, Transportation System by allowing use of and to identify how best to minimize conflicts shared vehicles, reduce parking requirements between truck traffic generated by and pooling of trips through dynamic employment areas (as well as other uses) and carpooling. However, AVs present risks to the adjacent communities. Transportation System if not managed properly, such as adding more vehicle-trips 5.6.1 Port of Oshawa and St. Marys Cement on the road (including trips with empty dock vehicles to pick up passengers) and extending commuting trip lengths and patterns geographically.
Through Envision Durham, the Region will continue to monitor the rapidly changing field of emerging technologies and consider policies which support their use as appropriate.
Discussion Question:
What are the potential implications of Figure 40: Cargo ship entering the Port of Oshawa (Source: Durham Region Planning and Economic Development emerging technologies on the Regional Department) Transportation System?
55 | E nv i s i o n D urha m 104 The Port of Oshawa is the Region’s largest Oshawa and the St. Marys Cement dock port and an important component of the facility, after which the role of the Oshawa Region’s transportation system and Harbour may be reconsidered. Given the economy. From 2007-2017, the port handled recent progress at the Port of Oshawa and its over 500 vessels, shipped over 357,000 growing role in the broader Regional metric tonnes of cargo and generated over economy, this policy will be reviewed as part $46 million in economic activity per year. The of Envision Durham. cargo handled by the port includes steel, liquid asphalt, calcium chloride, grain, corn, Discussion Question: soybeans, potash and project-specific cargo for General Motors.11 The port is linked to How should the ROP be enhanced to better the Transportation System via Farewell Street support the role of ports to the Regional (which is part of the SGMN), the Highway economy, such as the Port of Oshawa and 401/Harmony Road interchange and a rail the St. Marys Cement dock facility? spur (opened in 2015) to connect to CN’s Toronto-Montreal rail line. 5.6.2 Pickering federal airport lands In June 2019, the port authorities for Oshawa The ROP designates the federal airport lands and Hamilton were amalgamated to form the and includes several policies in anticipation Hamilton-Oshawa Port Authority. of an airport on these lands. As noted in the The St. Marys Cement dock supports the Envision Durham Urban System Discussion cement manufacturing facility in Paper, a decision has not yet been made by Bowmanville. An aggregate extraction facility the federal government on whether to is also part of the St. Marys Cement lands. proceed with an airport in Pickering. ROP With respect to the St. Marys property, the policies that speak to the airport, from a ROP permits the aggregate operation, transportation perspective, include waterfront planning, future rehabilitation of recognizing the airport as part of the the lands and possible future expansion of Transportation System, and establishing the the dock facility to a Regional harbour required Transportation System facility. The SGMN in the ROP (and Durham improvements prior to the development of TMP) identifies the dock as a future harbour a future airport. (refer to Figure 41).
The current ROP includes a policy for Oshawa Harbour (Port of Oshawa) that states it should be maintained until such time as studies have been completed for both
11 Port of Oshawa, Facts and Stats (www.portofoshawa.ca)
E nv i s i o n D ur ham | 56 105 Figure 41: Excerpt of the Regional Official Plan, Strategic Goods Movement Network, showing harbours
In 2015, Regional Council formally supported the development of an employment cluster, the development of an airport in Pickering in which could include employment area lands principle. In 2018, the Region released the in the emerging Seaton community known Capacity Where It Counts: The GTA East as the Pickering Innovation Corridor. The Airport at Pickering report, to review the federal airport lands are well connected to future role and function an airport could Highway 407 at Brock Road and at the bring to the Region’s economy. It recognized Whites Road extension (currently under its importance as a strategic site for goods construction), the 407 Transitway and the CP movement to handle air cargo and support Havelock rail line.
57 | E nv i s i o n D urha m 106 To support the provision of regional are identified through education, infrastructure in the Seaton community, the enforcement and engineering solutions, Central Pickering Class EA for Regional similar to the Region’s Vision Zero Strategic Services was completed in 2014. As part of its Road Safety Action Plan. recommended design for Regional roads, the extension of Whites Road north of Highway 7 The guideline will be considered as part of can be accommodated as a connection to the the Arterial Corridor Guidelines update. federal airport lands. Brock Road could also Support for the SGMN, while mitigating serve as a connection to the lands, and both traffic impacts from goods movement in it and Whites Road are planned as part of the hamlets and small urban areas, is a delicate Region’s High Frequency Transit Network balance that will be further reviewed through including future HOV lanes. If demand Envision Durham. warrants, the HOV lanes could be converted into dedicated BRT lanes if one or both routes was to be the primary means of access to the airport.
Through Envision Durham, the overall impact of the federal airport lands will be considered in an effort to contemporize existing ROP policies.
5.6.3 Traffic Management Guideline for Hamlets
In April 2014, the Region released a Traffic Figure 42: Simcoe Street, downtown Beaverton (Source: Durham Region Planning and Economic Development Management Guideline for Hamlets, which Department) provides guidance on the process and techniques to address traffic issues on Regional roads within hamlets and smaller Discussion Question: urban areas. The guideline addresses traffic growth on rural commuter routes, as well as What should the Region consider in goods movement on these routes, including supporting the Strategic Goods Movement trucks that transport aggregate and surplus Network while preserving a complete fill material. It addresses a complete streets streets approach for all road users? approach, making roads through these areas more suitable for all users, directed toward increasing safety by helping to reduce vehicle speeds. Approaches to address traffic concerns in hamlets and smaller urban areas
E nv i s i o n D ur ham | 58 107 6.0 Next steps
This Discussion Paper is the fifth in a series of Discussion Papers being released over the course of 2019. These Discussion Papers provide an overview and background on theme-based land use planning matters and pose various questions in order to gather opinions and to help shape future policy.
Your feedback is important to us. The Regional Planning Division appreciates your interest and encourages your participation throughout the Envision Durham process. To submit your comments, please visit durham.ca/EnvisionDurham.
Following the release of these Discussion Papers, interested parties will also have opportunities to provide feedback on theme- based policy proposals and, a future draft of the Regional Official Plan.
To stay up-to-date on Envision Durham, please visit durham.ca/EnvisionDurham and subscribe to receive email updates.
Discussion Question:
Have we missed any trends that you feel should be reviewed and considered from a Transportation System context as part of Envision Durham?
59 | E nv i s i o n D urha m 108 Appendix A: Discussion questions workbook
Discussion questions are posed throughout the Transportation System Discussion Paper. We are interested in hearing from you on these topics or any others that are important to you, and which have not been addressed. The following is a summary of the questions contained within this discussion paper:
1. Beyond “In Delivery” and “In Development” transit projects, which projects do you feel will have the greatest benefit to increase transit use and promote transit supportive development in Durham? (Page 23)
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2. Should the Region only designate Regional Corridors adjacent to the High Frequency Transit Network? (Page 37)
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3. Should Transit Oriented Development policies and guidelines for Strategic Growth Areas be tailored to the planned level of transit service? (Page 38)
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E nv i s i o n D ur ham | 60 109 4. Do you support Major Transit Station Areas having specific transportation-related policies to support their development as Transit Oriented Development places, similar to those already applied to Regional Centres? (Page 39)
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5. What up-front considerations should the Regional Official Plan provide with respect to transit supportive development outside of Strategic Growth Areas? (Page 39)
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6. Do you support a new Transit Hub designation and policies as part of the Regional Official Plan? (Page 40)
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7. How can Regional Official Plan policies support planning for all road users when assessing new developments and reconstructing or building new roads? (Page 44)
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61 | E nv i s i o n D urha m 110 8. How should the Regional Official Plan recognize or plan for enhanced trail connections as key active transportation linkages within hydro corridors and Waterfront Areas? (Page 46)
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9. Would providing clearer future right-of-way requirements for specific sections of arterial roads in the Regional Official Plan be beneficial for development application review or Class Environmental Assessment studies? (Page 48)
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10. Is it appropriate that the Regional Official Plan address an integrated Class Environmental Assessment and Planning Act process in new growth areas to optimize the alignment and design for arterial roads? (Page 48)
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E nv i s i o n D ur ham | 62 111 11. Are there aspects of Transportation Demand Management beyond employer and school trips, and review of development applications, that should be addressed in greater detail in the Regional Official Plan? (Page 52)
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12. What should the Region’s role be in supporting carpooling, and in what locations would this be most appropriate? (Page 53)
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13. What are the potential implications of emerging technologies on the Regional Transportation System? (Page 55)
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14. How should the Regional Official Plan be enhanced to better support the role of ports to the regional economy, such as the Port of Oshawa and the St. Marys Cement dock facility? (Page 56)
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63 | E nv i s i o n D urha m 112 15. What should the Region consider in supporting the Strategic Goods Movement Network while preserving a complete streets approach for all road users? (Page 58)
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16. Have we missed any trends that you feel should be reviewed and considered in the Transportation System context as part of Envision Durham? (Page 59)
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E nv i s i o n D ur ham | 64 113 Appendix B: Glossary October 2000, as amended in 2007, 2011 and 2015). Active Transportation: Any method of travel that is human-powered, such as walking and Compact Built Form: A land use pattern that biking (Durham Regional Official Plan). encourages the efficient use of land; walkable neighbourhoods; mixed land uses Autonomous Vehicles: Vehicles including (residential, retail, workplace, and cars and buses using an assortment of on- institutional) all within one neighbourhood; vehicle sensors and connected technology to proximity to transit; and reduced need for take over some or all aspects of the task of infrastructure. Compact built form can driving. Partially automated vehicle features include detached and semi-detached houses include parking, lane-change assistance, and on small lots, as well as townhouses and collision avoidance. Fully automated vehicles walk-up apartments, multi-storey operate all driving functions without the commercial developments, and apartments intervention of a human driver. May be or offices above retail. Walkable personally owned (PAVs) or shared (SAVs). neighbourhoods can be characterized by Can include driverless taxis (Metrolinx, 2041 roads laid out in a well-connected network; Regional Transportation Plan, Engage destinations that are easily accessible transit consultation program and active transportation; sidewalks with www.metrolinxengage.com). minimal interruptions for vehicle access; and a pedestrian-friendly environment along Bus Rapid Transit: Transit infrastructure and roads to encourage active transportation service with buses running in their own (Growth Plan, 2019). exclusive right-of-way, fully separated from traffic, with signal priority measures in place Complete Communities: Places such as and longer spacing between stops than mixed-use neighbourhoods or other areas conventional bus routes (typically 500 metres within cities, towns, and settlement areas to one kilometre) to maintain higher average that offer and support opportunities for speeds and ensure reliability of the service people of all ages and abilities to (Metrolinx, 2041 Regional Transportation conveniently access most of the necessities Plan, Engage consultation program for daily living, including an appropriate mix www.metrolinxengage.com). of jobs, local stores, and services, a full range of housing, transportation options and public Class Environmental Assessment: A planning service facilities. Complete Communities are process, approved under the Environmental age-friendly and may take different shapes Assessment (EA) Act, for a class or group of and forms appropriate to their contexts undertakings. Projects included in the Class (Growth Plan, 2019). EA may be implemented without further approval under the EA Act provided the Complete Streets: Streets that are designed approved Class EA planning process is to be safe for everyone: people who walk, followed (Municipal Engineers Association, bicycle, take transit, or drive, and people of Municipal Class Environmental Assessment, all ages and abilities. A Complete Streets
65 | E nv i s i o n D urha m 114 policy ensures that transportation planners consultation program and engineers consistently design and www.metrolinxengage.com). operate the entire street network for all road users, not only motorists. Complete Streets High Frequency Transit Network: Consists of offer wide ranging benefits. They are cost buses in planned High Occupancy Vehicle effective, sustainable, and safe (Complete (HOV) lanes, or buses in mixed traffic, with Streets for Canada, The Centre for Active transit signal priority at major intersections Transportation, 2019). and other measures to ensure fast and reliable transit service. Planned HOV lanes Connected Vehicles: Vehicles that are may be converted to dedicated bus lanes as enabled to communicate with other vehicles, growth in ridership warrants (Durham mobile electronic devices, and connected Regional Official Plan). road infrastructure (such as traffic signals). Many vehicles already use some connected High Occupancy Vehicle Lane: A lane of technology, such as GPS-enabled navigation roadway that is typically designated for use systems (Metrolinx, 2041 Regional only by vehicles with a specified minimum Transportation Plan, Engage consultation number of occupants, including transit program www.metrolinxengage.com). vehicles (Metrolinx, 2041 Regional Transportation Plan, Engage consultation Frequent Rapid Transit Network: A seamless program www.metrolinxengage.com). and reliable network of transit services running at least every 10-15 minutes all- day, Higher Order Transit: Transit that generally every day. The FRTN will consist of transit operates in partially or completely dedicated routes and corridors that ensure fast and rights-of-way, outside of mixed traffic; and reliable service through the use of dedicated therefore, can achieve levels of speed and infrastructure, design elements, and other reliability greater than mixed-traffic transit. supporting investments as required (e.g., full Higher Order Transit can include heavy rail grade separation, exclusive right-of-way, (such as subways and intercity rail), light rail, wider stop spacing than conventional transit and buses in dedicated rights-of-way (Growth routes, signal priority, or other transportation Plan, 2019). systems management measures). The FRTN proposed for the GTHA will allow transit Intensification: The development of a users to make efficient transfers between property, site or area at a higher density than routes on the network, which includes currently exists through: a) Redevelopment, subways, transitways, Bus Rapid Transit, Light including the reuse of brownfield sites. b) The Rail Transit, Regional Express Rail, and development of vacant and/or underutilized Priority Bus corridors. Frequent Rapid Transit lots within previously developed areas. c) Network updates the term "Regional Rapid Infill development, and d) The expansion or Transit" used in The Big Move (2008) conversion of existing buildings (Provincial Regional Transportation Plan (Metrolinx, Policy Statement, 2014). 2041 Regional Transportation Plan, Engage
E nv i s i o n D ur ham | 66 115 Light Rail Transit: Transit infrastructure and further identified by the Province for the services consisting of light rail vehicles purposes of implementing the Plan (Growth running in an exclusive right-of-way, fully Plan, 2019). separated from traffic, with signal priority measures in place and longer spacing Rapid Transit Spine: An arterial road corridor between stops than conventional transit with dedicated transit lanes in most road routes (typically 500 metres to one sections [that] intersect with local transit kilometre) to maintain higher average speeds services (Durham Regional Official Plan). and ensure reliability of the service (Metrolinx, 2041 Regional Transportation Strategic Goods Movement Network: Plan, Engage consultation program Preferred haul routes that are planned to www.metrolinxengage.com). accommodate commercial vehicles on a year- round basis, and which link major generators Major Transit Station Areas: The area of traffic (Durham Regional Official Plan). including and around any existing or planned Higher Order Transit station or stop within a Strategic Growth Areas: Within settlement settlement area, or the area including and areas, nodes, corridors and other areas that around a major bus depot in an urban core. have been identified by municipalities or the Major Transit Station Areas generally are province to be the focus for accommodating defined as the area within an approximate intensification and higher-density mixed uses 500- to 800-metre radius of a transit station, in a more compact built form. Strategic representing about a 10-minute walk Growth Areas include Urban Growth Centres, (Growth Plan, 2019). Major Transit Station Areas, and other major opportunities that may include infill, Multi-modal Level of Service: Expanding the redevelopment, brownfield sites, the scope of the traditional Level of Service expansion or conversion of existing buildings, (LOS), which refers to the quality of the road or greyfields. Lands along major roads, environment for drivers, by factoring in arterials, or other areas with existing or things like intersection delay, congestion and planned frequent transit service or higher average vehicle speed measure to considers order transit corridors may also be identified the experiences of all road users, rather than as strategic growth areas (Growth Plan, focusing on drivers and their passengers 2019). (Durham Transportation Master Plan, 2017). Transportation Demand Management: Other Transit Connection: Facilitates longer- Strategies that unlock the benefits of new distance trips, providing direct links to investments in transportation infrastructure Transportation Hubs and Commuter Stations and services, and make the best use of the from smaller urban and rural areas (Durham transportation system’s available capacity. Regional Official Plan). TDM uses a variety of tools including carpooling and vanpooling, HOV lanes, Priority Transit Corridors: Transit corridors telework and park-and-ride (Metrolinx, 2041 shown in Schedule 5 of the Growth Plan or as Regional Transportation Plan).
67| E nv i s io n D urha m 116 Transit Oriented Development: The clustering of high density, compact development in close proximity to transit infrastructure, with a mix of uses including office, residential, community uses retail and other amenities that support transit ridership. They also place a high priority on good quality pedestrian-oriented streetscapes, parks and buildings (Durham Transportation Master Plan, 2017).
Transit-supportive: Relating to development that makes transit viable and improves the quality of the experience of using transit. It often refers to compact, mixed-use development that has a high level of employment and residential densities. Transit-supportive development will be consistent with Ontario’s Transit Supportive Guidelines (based on Provincial Policy Statement, 2014 and modified for Growth Plan, 2019).
Urban Growth Centres: Existing and emerging downtowns, as identified in Schedule 4 of the Growth Plan, 2019. In the context of Durham Region, downtown Pickering and downtown Oshawa are Urban Growth Centres.
E nv i s i o n D ur ham | 68 117 Acronyms RCP: Regional Cycling Plan
ASST: Active and Sustainable School Travel ROP: Regional Official Plan
AV: Autonomous Vehicle RTN: Regional Trail Network
BRT: Bus Rapid Transit RTP: Regional Transportation Plan (Metrolinx) CV: Connected Vehicle SGA: Strategic Growth Area DRT: Durham Region Transit TDM: Transportation Demand Management EA: Environmental Assessment TMP: Transportation Master Plan EV: Electric Vehicle TOD: Transit Oriented Development FRTN: Frequent Rapid Transit Network TPAP: Transit Project Assessment Process GGH: Greater Golden Horseshoe UGC: Urban Growth Centre GTAA: Greater Toronto Airports Authority
GTHA: Greater Toronto and Hamilton Area
HOV: High-Occupancy Vehicle
LRT: Light Rail Transit
LTTS: Long Term Transit Strategy
MaaS: Mobility-as-a-Service
MMLOS: Multi-modal Level of Service
MTO: Ontario Ministry of Transportation
MTSA: Major Transit Station Area
MUP: Multi-use Path
OMCC: Ontario Municipal Commuter Cycling
PCN: Primary Cycling Network
PPS: Provincial Policy Statement
69 | E nv i s io n D urha m 118 The Regional Municipality of Durham 605 Rossland Road East, Whitby, Ontario L1N 6A3 905-668-7711 or 1-800-372-1102 www.durham.ca 119