TOWN OF WHITBY REPORT RECOMMENDATION REPORT

REPORT TO: Operations Committee REPORT NO: PW 50-08

DATE OF MEETING: November 10, 2008 FILE NO(S): N/A

PREPARED BY: Planning/Public Works Joint Report LOCATION: GTHA

REPORT TITLE/SUBJECT: : Draft Regional Transportation Plan; Draft Investment Strategy

1.0 RECOMMENDATION:

1 That Public Works/Planning Report Item PW 50-08 be received for information;

2 That Staff and Region comments contained in Report Item PW 50-08 concerning the Draft Regional Transportation Plan and Draft Investment Strategy released by Metrolinx be endorsed by Council;

3 That a copy of Report Item PW 50-08 be forwarded to Metrolinx, the Region of Durham and the Ministry of Transportation.

2.0 EXECUTIVE SUMMARY:

In September 2008, Metrolinx released its Draft Regional Transportation Plan (RTP), entitled, : Transforming Transportation in the Greater Toronto and Hamilton Area and Draft Investment Strategy, A Plan for Implementation Action for public and stakeholder review and comments. The Draft RTP provides Metrolinx's vision and implementation strategy for the creation of a Greater Toronto and Hamilton Area (GTHA) transit and public transportation system, while the Draft Investment Strategy outlines the proposed financing of the plan. Public comments are requested by November 14, 2008.

Durham Region staff, through Joint Commissioner’s No. 2008-J-39 completed a thorough review of the Metrolinx documents and have provided a number of comments and recommendations for Metrolinx to consider to ensure that the RTP reflects the transportation issues of importance in the Region. Staff concur with the Region's report recommendations, and offer additional comments and a Report to: Operations Committee Report No.: PW 50-08 Page 2 of 13

recommendation from the Town's perspective. It is recommended that Council endorse both the Region’s comments and those of Staff on the Draft RTP.

3.0 ORIGIN:

The Draft RTP and Draft Investment Strategy were released by Metrolinx in September 2008, with a submission deadline of November 14, 2008 for public input.

On October 21, 2008, the Region of Durham’s Finance & Administration, Planning and Works Committee released comments on the Draft RTP and Draft Investment Strategy based on the recommendations contained in the Region's Joint Commissioner's Report No. 2008-J-39.

Accordingly, the purpose of this report is to summarize Metrolinx’s Draft RTP and Draft Investment Strategy and highlight the recommended changes, comments, and priorities put forward by the Region's Joint Commissioner's Report 2008-J-39. Additional Public Works and Planning Staff comments are also provided.

4.0 BACKGROUND:

In July 2007, the GTHA municipalities made presentations to Metrolinx (previously the Greater Toronto Transit Authority) outlining their transportation needs. Following this meeting, Metrolinx issued a series of Green Papers that discussed a variety of transportation issues facing the GTHA, including: transit, roads and highways, active transportation, transportation demand management, mobility hubs, and goods movement.

In April 2008, Planning and Public Works Joint report No. PL 59-08 was received by the Planning and Development Committee. Staff provided an overview of the RTP process and Green Papers, and provided comments for council endorsement.

Based on public and stakeholder consultation on the Green Papers, Metrolinx released two White Papers in May 2008, which identified the vision, goals, objectives, and policy directions of the RTP. Joint Staff report PL 90-08 was received by Planning and Development Committee on June 23, 2008, which provided a summary of the two White Papers and a number of comments for Council endorsement. Council also endorsed the recommendation that Metrolinx provide a 120 day review period of the draft RTP upon its release. While the publication of the draft RTP and Investment Strategy was delayed until September 26, 2008, the public consultation period remains tight at approximately 50 days.

It should be noted that Durham Region and area municipal staff took part in a roundtable discussion on these documents, which culminated in the Region’s Joint Commissioner’s report No. 2008-J-39. Due to the broad implications of the draft RTP, Report to: Operations Committee Report No.: PW 50-08 Page 3 of 13

the Region’s report was a collaborative effort involving Regional Staff of the CAO office, , the Finance, Planning, Economic Development and Tourism, and Works Departments.

Copies of the draft RTP and Investment strategy have been made available to Council under separate cover. These documents are also available for viewing on the Metrolinx website (www.metrolinx.com).

5.0 DISCUSSION/OPTIONS:

Summary of the Draft RTP:

The Draft RTP provides vision, goals, and objectives for the development of a GTHA transportation system. The Draft RTP builds on the work and comments from the public and stakeholders on seven previous Green Papers released between late 2007 and early 2008, and two White Papers released in May 2008 (See Attachment 1, Preface).

The Draft RTP envisions that in 25 years the GTHA will have an integrated regional transportation system that supports a high quality of life, environmental protection, and a strong economy; also described as a seamless, efficient, convenient, equitable and user-oriented system. Transit will change to a system that values “moving people and goods, rather than moving vehicles”. The RTP will fulfill part of Phase 1 for the E.A. process and may become a Provincial Plan similar to the Growth Plan and Greenbelt.

In order to realize this vision, the Draft RTP has stated 15 strategic directions, which have been summarized into the following themes or categories:

 Reduce Demands on the transportation system;  Increase travel choices;  Meet the needs of travellers first;  Build communities that make travelling easier; and  Commit to continuous improvement.

In turn, these themes will be implemented through a series of different actions (approximately 90), of which Metrolinx identifies “8 Big Moves” as priorities for immediate attention:

 A fast, frequent and expanded regional rapid transit network (identified in Figure 4 Appendix 1, Figure 5 Appendix 2 of the draft RTP);  A complete walking and cycling network with bike-sharing programs;  An information system for travelers, where and when they need it;  A GTHA-wide integrated transit fare system;  A system of connected mobility hubs; Report to: Operations Committee Report No.: PW 50-08 Page 4 of 13

 Establish a high-order transit connectivity to the Pearson airport district from all directions;  A comprehensive strategy for goods movement; and,  An investment strategy to provide stable and predictable funding.

A number of short term projects, termed “Quick Wins” by Metrolinx, have already begun. These projects take advantage of the 2008 Provincial Budget that commits $750 million for a series of transit initiatives throughout the GTHA. Of these projects, funding for the early phase of the Highway 2 Bus Rapid Transit (BRT) spine has direct impact on the Region of Durham.

The implementation of the RTP is set out in two phases. The first phase, which spans the first 15 years of the 25 year plan, begins in 2009. The draft RTP identifies 15 top priorities for early implementation, of which two specifically relate to Durham Region:

 Express Rail service along GO Lakeshore line, connecting several of the Growth Plan’s Urban Growth Centres (UGC’s) including ; and,  Rapid transit service along Highway 2.

In addition to the top 15 priorities, there are a number of other planned transportation improvements in the first phase that relate to Durham. These include:

 Extending GO Regional Rail service to Seaton;  The completion of the Highway 407 East extension and regional road widening and extensions;  $300 million invested in new walking and cycling infrastructure across the GTHA; and,  An integrated transit fare card that allows for seamless connections among all transit service providers.

While these transit initiatives are specific and of benefit to the Region of Durham, it is agreed that a number of the top priorities will generally enhance the mobility of Whitby residents throughout the Region and GTHA.

The second phase, which spans the years 16-25 (2024-2033), includes additional improvements and the consolidation of the previous phase’s developments. Planned infrastructure developments related to Durham include:

 Durham and Toronto will be connected with a new RT service along the Taunton Road and corridor;  New east-west BRT service will be added from Pearson Airport district through York Region to Scarborough Town Centre and Pickering via Highways 407 and 401; Report to: Operations Committee Report No.: PW 50-08 Page 5 of 13

 Necessary improvements to regional road networks to service new growth will continue in accordance with local Transportation Master Plans;  Opportunities for upgrading BRT services to Light Rail Transit (LRT) will be examined; and  $200 million (throughout the GTHA) invested in walking and cycling infrastructure for an additional 3,000 km of new facilities.

Beyond the 25 year plan (i.e. 2033), of the priority projects listed, two directly relate to Durham: additional RT lines along Highway 407; and, an east-west express rail connecting Oakville, Mississauga, Vaughan, Richmond Hill, Markham and Pickering.

Costs and financing are briefly discussed in the Draft RTP. The 25 year plan is estimated to cost $50 billion in total, or $2 billion a year. It is important to note that these figures relate only to the upgrade and expansion of the regional transportation network, and do not include the estimated $1.5 billion for transportation and $230 million for road and highway maintenance per year. Furthermore, costs of local road widening and extensions, and necessary increased local public transit services are not included in this maintenance figure and will have to be budgeted by local municipalities.

Initial financing of the RTP at this point is entirely dependent on the Provincial government's MoveOntario 2020 funding commitment. Longer term funding resources are less clear. A more detailed discussion of the financing scheme is found in the following section on the Draft Investment Strategy.

The Draft RTP also outlines the roles and responsibilities of the stakeholders involved in the plan. The Draft RTP is recommended to have the legal status of a Provincial Plan. The primary role of municipalities is to support implementation through their transportation and Official Plans and capital planning process. There is concern that the role of Metrolinx in land use planning does not overlap or duplicate existing provincial and municipal planning responsibilities.

Summary of the Draft Investment Strategy:

The RTP’s Draft Investment Strategy is a high level financial plan for the construction of the first projects beginning in 2009. The funding basis is the $17.5 billion MoveOntario 2020 planned investment in ’s infrastructure. Of this $17.5 billion, the Province has committed $11.5 billion, and is requesting the Federal government to contribute the remaining $6 billion, which is yet to be secured.

With the Provincial commitment, capital funding for the RTP will be met up until 2015. The Federal transfer will further funding until 2018. Metrolinx proposes to consult with the public and stakeholders regarding the funding gap post 2015 (2018 with the Federal transfer), and to report back to the Provincial government in 2013 with potential funding solutions to complete the 25-year RTP. Metrolinx is considering a Report to: Operations Committee Report No.: PW 50-08 Page 6 of 13

variety of options to secure funding for the post 2015 period of the plan. Some of these options under consideration include:

 Development Charges that reflect the real value of land development;  Land Value Capture and Taxation;  Tax Increment Financing;  Business Improvement Area levies; and  Opportunities for joint developments between the public and private sector.

The investment timeline is as follows. Capital expenditures will begin in 2009 at $1.1 billion annually, and increase to $2.5 billion by 2015. The capital expenditure program will be completed in 2033, which is the planned timeframe of the RTP build out. Beginning in 2020, asset rehabilitation to maintain the projects will begin. As more capital projects are developed, this expense will increase, and is estimated at $1.8 billion per year by 2033. In order to finance the capital renewal and rehabilitation costs, Metrolinx is assuming an annual contribution of 4% of the total capital costs be made to a reserve fund, starting 5 years after the project commences.

Operating expenditures will similarly increase as more projects are completed. Beginning in 2009, operating expenditure is estimated at $18 million per year, increasing to $1.4 billion by 2033. While the Province will largely be responsible for the operating costs of new regional rail and express rail services, municipalities will assume the costs of subway, automated guided transit, LRT, and BRT, where applicable. Combined costs of capital, rehabilitative, and operating costs will reach $3 billion per year for most of the 25-year RTP.

Region of Durham Comments on the Draft RTP and Draft Investment Strategy:

The following are the key recommendations shown in italics and listed in Joint Commissioner’s Report No. 2008-J-39, as revised and endorsed by the Region’s Planning, Works, and Finance and Administration Committee on October 21, 2008. While every recommendation does not address Whitby specifically, it is agreed that any modifications of the draft RTP based on Durham comments will have a beneficial impact on transit and public transportation for the Town of Whitby.

A) THAT the comments and concerns on the draft Regional Transportation Plan (RTP) and draft Investment Strategy (IS) outlined in Joint Report #2008-J-39 and Appendix 1 attached thereto, with the following key elements, be endorsed and forwarded to Metrolinx as Durham Region’s input to the consultation process related to these two draft documents:

1) The Metrolinx RTP and Investment Strategy should be aligned with the Province’s Central Pickering Development Plan (CPDP) for Seaton to be a showcase for sustainability and therefore the RTP and IS should Report to: Operations Committee Report No.: PW 50-08 Page 7 of 13

provide for the regional transit network to support Seaton as a “transit first” community of 70,000 people and 35,000 jobs by 2021, including:

a) East-west rapid transit connections to North Toronto and to York Region; b) Road widening and bus rapid transit (BRT) service in the Steeles- Taunton corridor as a top priority in the 15 year plan; c) The extension of the Brock Road bus rapid transit (BRT) line beyond Seaton to the 407 in the 15 year plan; d) The 407 transitway to be built concurrent with the highway to save on construction time and costs and provide a “transit first” environment as new employment and residential development along this corridor proceeds; and e) Bundling construction of the Seaton transit connections into a single project to accelerate their completion.

2) The policies in the RTP relating to mobility hubs should:

a) Recognize that each mobility hub will be unique to its location and community; b) Align the types, locations and phasing of mobility hubs in Durham with the population allocations, density decisions and other results of the Growth Plan compliance exercise now underway; c) Locate the GO Stations associated with the Oshawa anchor hub and the recommended Bowmanville gateway hub on the CP Belleville line (north of the 401) close to transit connections, population, and retail or employment centres; and d) Recognize municipal capacity to manage the development of the hubs if the Province provides suitable financial incentives and tools to promote and resource hub development.

3) The direction on goods movement in the RTP should be considered a higher priority and include a timeline for completing the strategy and the next steps that will result from the work of the proposed goods movement stakeholder roundtable such as modelling of a goods movement network including agricultural products and aggregates and proposals for inter-modal hubs. [NOTE: Underlined words added by Committee on October 21, 2008]

4) THAT the RTP should recognize planned improvements to the Provincial Highway system and should be supported by Metrolinx as major improvements to both the passenger and goods movement networks in the GTHA, including: Report to: Operations Committee Report No.: PW 50-08 Page 8 of 13

 Widening and new interchanges along the Highway 401 corridor east of the Rouge Valley, with provision for future HOV lanes by 2024;  Widening of Highway 7 in Durham by 2024; and,  Widening of Highway 12 around the east side of Lake Simcoe from Highway 404 to Highway 11 by 2034. [NOTE: this recommendation was added by Committee on October 21, 2008]

5) The Investment Strategy should include:

a) An operating cost model for all new infrastructure proposed under the RTP, to be developed before the RTP is approved, to enable municipalities and transit agencies to gauge affordability and provide sufficient notice to include into their long-term business planning and annual budgets; b) A financing plan for funding the post- 2018 RTP infrastructure for municipal consideration and review, prior to the RTP being approved, using a range of financing tools for transit and transportation, that recognizes the need for financing mechanisms that respond to or are matched to different geographic contexts and circumstances (i.e. rural, suburban, dense urban) across the Greater Toronto and Hamilton Area (GTHA); and c) To ensure growth pays for growth, a development charge strategy which includes the elimination of the historical service level cap and the elimination of the GO Transit DC;

6) A study of the need and feasibility of a transit transfer hub at the junction of the 407 Transitway with the Lakeshore East GO facility, south of Highway 401 at Lake Ridge Road.

B) THAT the Province acknowledges that the Regional Transportation Plan or Investment Strategy cannot supersede any agreements already in place between the Province of Ontario and the Federal Government;

C) THAT Metrolinx makes the following specific changes to Figures 4 and 5 and Section 2.4, Results, of the draft Regional Transportation Plan (RTP):

1) With respect to the Highway 407 east extension:

a) Amend Figure 4 (the 15 year plan) to clearly reflect the Provincial commitment to complete the Highway 407 east extension by 2013 and the transitway within the first 15 years of the RTP; b) Amend Figure 5 (the 16 to 25 year plan) to show the highway and its links and transitway as completed; and Report to: Operations Committee Report No.: PW 50-08 Page 9 of 13

c) Revise the text referring the 407 east extension on page 75 of the draft RTP to reflect the Province’s commitment to complete this highway and its links by 2013 (i.e. in the first 5 years of the RTP).

2) With respect to Highway 404, the extension of the highway from Ravenshoe Road to Highway 12 in Brock Township be shown in Figure 5.

3) With respect to Highway 7, widening and improvement of the highway west of Brock Road to four lanes through Seaton to support development and transit service must be included early in the first 15 years of the RTP and shown appropriately on Figures 4 and 5.

4) With respect to the Taunton-Steeles rapid transit connection:

a) Resolution of the Taunton-Steeles traffic bottleneck be recognized in the Section 2.4.3, as a priority within the 15 year plan to support to the development of Seaton (Central Pickering Development Plan); b) The reference to the Taunton-Steeles rapid transit connection on page 76 therefore be moved from Section 2.4.4, Years 16 to 25, to Section 2.4.3, The First 15 Years, under the sub-heading of New East-West Transit Connections as a fifth essential east -west connection project in the 15 year plan; and c) Amend Figures 4 and 5 to accurately depict these revisions.

5) With respect to the Highway 2 Rapid Transit, amend Figures 4 and 5 and, Section 2.4.3 to show:

a) The Highway 2 Rapid Transit service connection to the Toronto Transit Commission (TTC) system at the Kennedy subway station rather than Scarborough Town Centre to enable a single direct transfer from the Durham system to the TTC systems; and b) Extension of the Highway 2 Rapid Transit service to Bowmanville in the 15 year plan.

6) Extension of the Brock Road rapid transit line beyond Seaton to the 407 be included in Section 2.4.3 within the 15 year plan and on Figure 4 to support connectivity of Seaton to the 407 employment areas and York Region.

7) To service planned growth along the 407 corridor and a transit hub at the UOIT campus, the extension of the proposed Simcoe Street bus rapid transit (BRT) to, and beyond, the Taunton-Steeles LRT/BRT to the 407 highway corridor be included in the 15 year plan, Section 2.4.3, and shown accordingly on Figures 4 and 5. Report to: Operations Committee Report No.: PW 50-08 Page 10 of 13

8) With respect to transportation services to the future Pickering Airport that:

a) The RTP be revised to acknowledge that the proposed Pickering airport will be a major new component of the GTHA transportation system and generator of trips; b) Consistent with the MoveOntario 2020 announcement, that the 15 year plan, Section 2.4.3, and Figure 4 be revised to extend peak rail service to the Pickering airport site concurrent with development of the airport; c) Figure 5 be revised to show the rail connection to the Pickering airport as full-day, two-way service when the airport is built; and d) A mobility hub be added at the Pickering airport site in the 25 year plan and on Figure 5.

9) With respect to extension of regional rail to Uxbridge, as provided for in the MoveOntario 2020 announcement, that this extension be shown in Figure 5.

10) Amend Section 2.4.3 within the 15 year plan and on Figures 4 and 5 to show Express Rail service extending to Bowmanville; [NOTE: This recommendation was added by Committee on October 21, 2008]

11) Further with respect to mobility hubs, that:

a) Two more hubs be added to Figures 4 and 5 in Durham Region, one in the UOIT/Durham College/North Oshawa area and one at the eastern gateway to the GTHA in Bowmanville on the CP Belleville line; b) The mobility hub shown on Figures 4 and 5 in South Oshawa and the related new rail station should be moved north of the 401 on the CP line instead of the CN line to facilitate access to the Oshawa Urban Growth Centre and major office and retail uses in the Stevenson Road area north of the 401; and c) Revise Figures 4 and 5 to show the crossover from the CN to the CP rail lines for the Lakeshore East extension in Oshawa rather than in Clarington; and

D) Amend Figure 6 within the 15 year plan to extend the arrow to identify Clarington as part of the GTHA; [NOTE: This recommendation was added by Committee on October 21, 2008] Report to: Operations Committee Report No.: PW 50-08 Page 11 of 13

E) THAT a copy of Joint Report #2008-J-39 be forwarded to Metrolinx, the Ministers of Transportation and Municipal Affairs and Housing, and Durham Region MPs and MPPs, and the eight area municipalities.

Joint Commissioner’s Report No. 2008-J-39 concludes that the RTP is an excellent first step toward improving and integrating transportation in the GTHA, but its success in Durham will require addressing the above key staff recommendations.

Staff Comments:

The comments and recommended improvements to Metrolinx’s draft RTP put forward by Regional Staff are based on a comprehensive and collaborative assessment of the draft RTP and Investment Strategy. They are supported by Town Staff. In particular, the recommendation regarding the investigation of a possible transit transfer hub at the junction of the 407 Transitway with the Lakeshore East GO facility, south of Highway 401 at Lake Ridge Road is supported. It should be noted that the Highway 407 transitway, adjacent to the West Durham Link, currently plans to terminate at Dundas Street and should be extended utilizing the existing arterial corridor. It is also agreed that further clarity on costs, particularly operations and maintenance, and financial responsibilities between the numerous stakeholders involved in the RTP is required.

In addition to the above Regional Staff recommendations, Town staff also support the identification of the Port Whitby GO station as a Gateway Hub. This location was initially identified as a Gateway Hub in the previous policy directions released by Metrolinx last May and was supported. However, it appears to have lost that designation, likely due to the removal of the recommended rapid transit route through Downtown Whitby along Brock Street in the draft RTP. While Port Whitby GO does not technically represent a junction point of two or more rapid transit lines, it does in staff’s opinion provide access to the regional transit system for a significant number of origin and destination trips, a point that is also encompassed in Metrolinx's definition of a "Gateway Hub". Port Whitby should be seen as an opportunity for intensification of both residents and jobs, with high potential to emerge as a Gateway Hub, particularly over the next 25 years.

The Highway 407 preferred route alternatives were presented to the public in July 2008. The Design Team is expected to present the preliminary design final plans to the public in late January/early February 2009. This will be completed through the 5th round of Public Information Centres. The documentation of the Environmental Assessment (EA) has been ongoing throughout the process with the submission of the Environmental Assessment Report anticipated to be in June 2009. The province has stated that the implementation of Highway 407 is a priority. As such, the schedule for the EA component of the process has been established to support the targeted date of 2013 for completion. Report to: Operations Committee Report No.: PW 50-08 Page 12 of 13

Whitby Staff also recommend that Highway 407 should be identified as a new transportation corridor east of the York/Durham boundary.

6.0 PUBLIC COMMUNICATIONS/PLAN:

N/A

7.0 CONSIDERATIONS:

A. PUBLIC N/A

B. FINANCIAL N/A

C. IMPACT ON & INPUT FROM OTHER DEPARTMENTS/SOURCES N/A

D. CORPORATE AND/OR DEPARTMENT STRATEGIC PRIORITIES N/A

8.0 SUMMARY AND CONCLUSION

It is recommended that Report Item PW 50-08 be received for information, that both Staff and Regional comments and recommendations contained in Report Item PW 50-08 be endorsed as the Town's comments, and that a copy of Report Item PW 50-08 be submitted to Metrolinx, MTO, and the Region of Durham.

9.0 ATTACHMENTS

Attachment 1 – Preface, draft Regional Transportation Plan, Metrolinx, September, 2008

Attachment 2 – Figure 4 15-Year Plan for Regional Rapid Transit and Highway Improvements, draft Regional Transportation Plan, Metrolinx, September, 2008

Attachment 3 – Figure 5 25-Year Plan for Regional Rapid Transit and Highway Improvements, draft Regional Transportation Plan, Metrolinx, September, 2008 Report to: Operations Committee Report No.: PW 50-08 Page 13 of 13

For further information contact: Larry Cavanagh, Ext. 2282 Tara Painchaud, Ext. 2419

______Suzanne Beale, Director of Public Works, Ext. 4311

______Robert B. Short, Director of Planning, Ext. 4309

______Robert Petrie, Chief Administrative Officer, Ext. 2211