STAFF REPORT

April 7, 2004

To: Works Committee

From: Barry H. Gutteridge, Commissioner, Works and Emergency Services

Subject: Port Union Road Class EA, Lawrence Avenue East to Kingston Road Environmental Assessment Study (Scarborough East)

Purpose:

To report on the findings and recommendations of the Port Union Road, Lawrence Avenue East to Kingston Road, Class Environmental Assessment Study and request authority to file the Environmental Study Report in the public record in accordance with the requirements of the Municipal Class Environmental Assessment.

Financial Implications and Impact Statement:

The implementation of this project is to be divided into two phases. The first phase consists of the intersection modifications proposed for the intersection of Kingston Road and Port Union Road and is scheduled to proceed in 2005. Funds for this purpose have been identified in the Transportation Services five-year Capital Works Program and will be included in the 2005 Capital Budget request. Phase two of the project, the widening of Port Union Road, is currently scheduled for 2014, well beyond the five-year Capital Works Program. Funds to cover the cost of this phase, will be included in the Transportation Services Capital Budget request at the appropriate time.

The Chief Financial Officer and Treasurer have reviewed this report and concur with the financial impact statement.

Recommendations:

It is recommended that:

(1) the recommended plan for widening Port Union Road between Lawrence Avenue East and Kingston Road and the modifications to the intersection of Kingston Road and Port - 2 -

Union Road, as documented in the Port Union Road Environmental Study Report, be endorsed;

(2) authority be granted to the Commissioner of Works and Emergency Services to file the Environmental Study Report for the Port Union Road Class Environmental Assessment Study with the City Clerk and to give public notification of such filing in accordance with the requirements of the Municipal Class Environmental Assessment process;

(3) the intersection modifications for Kingston Road and Port Union Road, as identified in the Environmental Study Report, be implemented in 2005 upon approval of the Environmental Study Report;

(4) prior to proceeding with the second phase of the project, the widening of Port Union Road, staff carry out further public consultation and report back to Council; and

(5) authority be granted to the Commissioner of the Urban Development Services to initiate an Official Plan Amendment to reduce the right-or-way requirements for Port Union Road to satisfy the right-of-way width as identified in the Environmental Study Report.

Background:

Port Union Road is a north-south arterial road located in the east end of the City of that provides the West Rouge, Centennial, and Port Union Village communities with direct access to Highway 401, Kingston Road, Sheppard Avenue East and Lawrence Avenue East. Port Union Road, between Kingston Road and Island Road, crosses over Highway 401 and currently has a basic four-lane cross-section with dedicated turning lanes at Kingston and Island Roads. A partial interchange with Highway 401 is also located on this section of Port Union Road. Between Island Road and Lawrence Avenue East, Port Union Road has two southbound lanes and one northbound lane with turning lanes at some intersections.

Traffic studies were undertaken in the early 1990s for several developments that were occurring in and around the Port Union Road environs. These studies supported a widening of Port Union Road and other associated intersection improvements upon full build-out of these developments, which has now occurred. Accordingly, a Class Environmental Assessment (EA) Study was initiated in July 2001 to review alternatives to address the existing and future transportation demands on Port Union Road and to determine a preferred solution to satisfy any deficiencies.

There are three issues that warrant the need to undertake a Class EA Study for Port Union Road: a significant amount of new development has been completed in this area since the early 1990s; area commuters have recently raised concerns relating to the operational safety of Port Union Road at certain locations; and property protection plans are required to assist staff in their review of site plan and zoning applications for redeveloping properties on Port Union Road. - 3 -

Comments:

Study Process:

The Port Union Road Class Environmental Assessment Study has been completed according to the requirements for a Schedule ‘C’ project under the Municipal Class Environmental Assessment (the Class EA). As a requirement of Schedule C projects, if the City of Toronto Council endorses the recommendations of this Study, the Environmental Study Report (ESR) will be filed in the public record for a minimum 30-day review period. During this period, members of the public, and any other interested individual, interest group, or government agency may request that a Part II Order be issued. A Part II Order, if granted by the Minister of the Environment, elevates the status of the project from a Class EA Study to an Individual Environmental Assessment Study, requiring further work and approval from the Minister. If a Part II Order is not granted or if no requests or objections are received during this filing period, the project is approved under the Environmental Assessment Act and may proceed.

The ESR describes in detail the first three phases of the five–phase environmental planning process set out by the Class EA:

Phase 1 – identification of the problem or opportunity;

Phase 2 – identification and evaluation of alternative solutions; and

Phase 3 – identification and evaluation of alternative design concepts for the preferred solution.

The preparation of the ESR itself and the filing of the document in the public record constitute Phase 4 of the environmental planning process. Phase 5 is the construction and operation of the project, and monitoring of impacts, in accordance with the terms of the EA approval.

The Port Union Road Class Environmental Assessment Study is currently at Phase 4 of the process. Subject to approval by City Council, the ESR will be filed for the minimum 30-day public review period.

The Class EA Study was carried out with the assistance of technical consultants and supported by a Technical Advisory Committee comprised of staff from the Works and Emergency Services Department, the Urban Development Services Department and the Toronto Transit Commission (TTC).

Public Consultation:

Public involvement has been an integral and ongoing part of the study process for the Port Union Road Class EA Study. The public consultation requirements of the Class EA were met and surpassed. Two Public Information Centres (PIC) were held for this study. Individual meetings were also held with community representatives along with the area Councillor. - 4 -

Upon commencement of the EA Study a questionnaire was mailed to approximately 6,000 households in the study area with approximately 1,200 completed and returned. The responses to the questionnaire initiated a mailing list for those individuals expressing an interest in the Study.

The first PIC was held on February 27, 2002, to review the problem statement, the preliminary development of alternatives, and the proposed factors for analysis. Approximately 300 residents attended this meeting. Prior to the first PIC newspaper notices were placed in the Scarborough Mirror on February 20 and 23, 2002. Notices were also mailed to those individuals on the mailing list notifying them of the meeting.

The evaluation of alternatives and the preliminary preferred design were presented at the second PIC which was held on May 29, 2002 and was attended by approximately 100 members of the public. Notices were mailed to those who had previously expressed an interest in the Study. In addition, newspaper notices were placed in the Scarborough Mirror on May 22 and 26, 2002.

A full description of the public consultation program can be found in Chapters 2.5, 4.4 and 6.6 of the ESR.

Environmental Assessment Findings:

(1) Identification of the Problem or Opportunity

The Study Area, illustrated in Figure No. 1, extends from Highland Creek in the west to the in the east, and from Kingston Road in the north to Lake in the south.

A review of existing and projected future transportation conditions in the Study Area identified a number of concerns with respect to capacity, operations and safety along Port Union Road between Kingston Road and Lawrence Avenue East. Specific concerns are as follows:

§ existing and projected future intersection and mid-block capacity deficiencies during the weekday AM and PM peak hours, especially in the northbound direction; § no reserve capacity and no potential relief of future capacity deficiencies by parallel north- south roads; § limitations of the arterial and collector road network generally caused by the major natural and man-made barriers forming the study area boundaries, including the Rouge River, Highland Creek, and Highways 2A and 401; § limited access to Highway 401; and § the existing narrow curb lanes do not accommodate cyclists well.

A full description of the analysis of existing and projected future conditions can be found in Chapter 3 of the ESR. - 5 -

(2) Identification and Evaluation of Alternative Solutions

To address the problems described above, eight alternative solutions were identified and assessed. These are described below.

Alternative 1: Do Nothing

The “Do Nothing” alternative provides a benchmark against which other alternatives are compared. This includes the continued operation of the existing transportation system.

Alternative 2: Extend Centennial Road Across Highway 2A

This alternative involves extending Centennial Road from south of Highway 2A to either connect with existing Centennial Road north of Highway 2A or to curve slightly to the west and connect directly to the Ellesmere Road/Kingston Road intersection. Both of these options would require an overpass to cross Highway 2A.

Alternative 3: Port Union Road Widening

This alternative would provide for an additional northbound lane on Port Union Road south of Island Road.

Alternative 4: Connect Lawson Road Directly with Military Trail

This option was considered using either an at-grade signalized intersection with Highway 2A or an overpass of Highway 2A.

Alternative 5: Extend Lawrence Avenue East Across the Rouge River

This alternative would include a bridge over the Rouge River to extend Lawrence Avenue East into the City of Pickering.

Alternative 6: Extend East Avenue Across Highway 401

This alternative would include a bridge structure across Highway 401 to connect East Avenue to Kingston Road.

Alternative 7: Extend Meadowvale Road Across Highway 2A

This alternative would provide a direct connection between the two existing sections of Meadowvale Road north and south of Highway 2A via either an at-grade signalized intersection on Highway 2A or on an overpass of Highway 2A. - 6 -

Alternative 8: Improve Public Transit

This alternative would include increased service on the Highland Creek and Sheppard Avenue East TTC bus routes to the same peak period level as now provided on the Lawrence Avenue East TTC route.

The alternative solutions described above are shown graphically on Figure No. 17 of the ESR.

These alternative solutions were evaluated based on:

(i) Transportation Service; (ii) Compatibility with/Support for the City’s new Official Plan; (iii) Right-of-Way Availability and Physical Feasibility; (iv) Operational Feasibility; (v) Land Use/Development Impacts; (vi) Socio-Economic Environment Impacts; (vii) Natural Environment Impacts; and (viii) Capital Costs.

Based on this assessment it was concluded that the “Port Union Road Widening” and the “Extend Meadowvale Road Across Highway 2A” alternatives were the two best alternative solutions. Both these alternatives adequately addressed transportation demands and both have relatively low impacts and low costs. A more detailed analysis was conducted to determine which of these two alternatives would be the preferred solution.

As a result of the detailed analysis conducted, it was determined that the widening of Port Union Road would result in greater transportation service benefits relative to the problems identified and lesser negative effects on the social and natural environments. Thus the Port Union Road Widening was concluded to be the alternative solution that best addressed the identified problem.

A detailed description of the evaluation of the alternative solutions can be found in Chapter 4 and Tables 3 and 4 of the ESR.

(3) Identification and Evaluation of Alternative Design Concepts for the Preferred Solution

A number of different design concept options were reviewed for the preferred solution of widening Port Union Road. These included:

Alternative Design 1: improvements to intersections only, including the addition of double left- turn lanes on the eastbound and westbound approaches and a dedicated westbound right-turn lane at the intersection of Kingston Road and Port Union Road, a northbound left-turn lane at Tilly Drive and a southbound left-turn lane at Winter Gardens Trail. Traffic signal timing modifications would also be implemented at the signalized intersections on Port Union Road between Island Road and Lawrence Avenue East. - 7 -

Alternative Design 2: constructing an additional northbound lane from Lawrence Avenue East to Island Road including bicycle lanes on both sides of the road. This alternative also includes the intersection improvements described in Alternative Design 1.

Alternative Design 3: the construction of an additional northbound lane, a continuous centre left-turn lane and bicycle lanes on both sides of the road from Lawrence Avenue East to Island Road. This alternative also includes the intersection improvements described in Alternative Design 1.

The “Do Nothing” alternative was also carried forward as a base for comparison.

Each alternative was analyzed and evaluated in detail utilizing the following key criteria:

§ Transportation Service: this criteria considered traffic and cyclist operations;

§ Transportation Safety: this criteria considered pedestrian, cyclist and motorist safety along the roadway;

§ Natural Environment: this criteria considered impacts to existing vegetation, public open spaces, surface drainage and stormwater management;

§ Socio-Economic Environment: this criteria considered property requirements, impacts on development, noise levels, air quality and impact to the community;

§ Urban Design: this criteria considered streetscaping, provision of sidewalks and greening of the corridor; and

§ Cost: this criteria considered the road construction costs.

Based on the results of the analysis and evaluation of alternative designs, and on input from technical agencies, the public, property owners and interest groups, Alternative Design 3 was identified as the recommended design. The benefits of this option are:

(i) it provides the best overall level of service to traffic;

(ii) it improves the level of safety along the roadway by providing left-turning traffic with a refuge to wait for gaps in opposing through traffic thus reducing the potential for rear-end collisions. Where no direct accesses are located on Port Union Road, it provides a median to separate opposing through traffic; and

(iii) it provides the opportunity for significant urban design features leading into the community and the new waterfront park south of Lawrence Avenue East.

Plans of the design alternatives are shown in Figure Nos. 19 to 30 in the ESR. Full details of the evaluation can be found in Chapter 6 and Table 8 of the ESR. - 8 -

(4) Recommended Design

The Recommended Design, illustrated in Figure Nos. 31 to 45 of the ESR, includes the following features:

§ an additional northbound lane on Port Union Road from Lawrence Avenue East to Island Road; § a continuous centre left-turn lane on Port Union Road from Winter Gardens Trail to Island Road; § a landscaped centre median on Port Union Road from Lawrence Avenue East to Winter Gardens Trail; § bicycle lanes on both sides of the road from Lawrence Avenue East to Island Road; § double eastbound and westbound left-turn lanes at Kingston Road and Port Union Road; and § dedicated northbound and eastbound right-turn lanes at Kingston Road and Port Union Road.

Approximately 1,069 square metres of property is required for the recommended design, however there are no buildings included in this property requirement. The estimated cost for the recommended design is $2.9 million.

Project Phasing

It is recommended that the construction of the Recommended Design be divided into two phases. Phase 1 consists of the proposed intersection modifications for the intersection of Kingston Road and Port Union Road and is to be implemented in 2005. These modifications will address the immediate congestion related to the westbound left-turn movements from Kingston Road to southbound Port Union Road.

Phase 2, consisting of the widening of Port Union Road, is to be completed in conjunction with the next major rehabilitation of Port Union Road, anticipated to occur in 2014. Prior to proceeding with the construction of the second phase it is recommended that additional consultation with the community be carried out to ensure that the recommended design addresses the needs and concerns of the community given the changes that may occur along the Port Union Road corridor in the ensuing years.

Drainage and Storm Water Management

Port Union Road currently drains surface water runoff via catch basins to a storm sewer running along the length of Port Union Road. The existing storm sewer, when installed, was sized to accommodate a widening of Port Union Road to six lanes. As a result the increased pavement area and resulting runoff can be accommodated in the existing storm sewer. Changes to runoff quantity and quality will have some effects on receiving waterbodies. It is therefore recommended that consideration be given in the detail design process to improving the quality and decreasing the quantity of the runoff in accordance with the Wet Weather Flow Management Master Plan. Several options may be considered at that stage, including but not necessarily limited to the installation of oil/grit separators, pervious pipes and/or curbs where soil characteristics are suitable. - 9 -

Next Steps:

Pending approval of this report by City Council, the ESR will be filed in the public record for a minimum 30-day period. Once EA approval is received, design and construction of Phase 1 of the Recommended Design may proceed as soon as funding is available.

During the public meetings held for this study concerns were raised with regard to the cost of this project and how it would affect the other priorities for Capital Budget funds within the City. We appreciate these concerns and typically strive to optimize our capital spending to take advantage of economies of scale and to ensure that our highest priorities receive funding first. Therefore, it is recommended that Phase 1, the proposed modifications to the intersection of Kingston Road and Port Union Road, proceed in 2005; and that Phase 2, the widening of Port Union Road not proceed until the next major rehabilitation of the road is scheduled. Currently, a major rehabilitation of Port Union Road is not envisioned until the year 2014.

Conclusions:

A Class EA study was undertaken to identify and evaluate alternative solutions for the traffic capacity, operational and safety concerns along Port Union Road between Kingston Road and Lawrence Avenue East.

Alternatives were developed to address these concerns and through an analysis and evaluation process, which included public and agency input, the following is recommended:

§ an additional northbound lane on Port Union Road from Lawrence Avenue East to Island Road; § a continuous centre left-turn lane on Port Union Road from Winter Gardens Trail to Island Road; § a landscaped centre median on Port Union Road from Lawrence Avenue East to Winter Gardens Trail; § bicycle lanes on both sides of the road from Lawrence Avenue East to Island Road; § double eastbound and westbound left-turn lanes at Kingston Road and Sheppard Avenue East; and § dedicated northbound and eastbound right-turn lanes at Kingston Road and Sheppard Avenue East. - 10 -

A Notice of Completion and filing of the Environmental Study Report must now be issued in the public record in accordance with the requirements of the Municipal Class Environmental Assessment.

It is proposed that the recommended design be implemented in two phases: Phase 1 -intersection modifications proposed for Kingston Road and Port Union Road proceed in 2005; and Phase 2 the widening of Port Union Road not be scheduled until at least the next major rehabilitation of the road, currently envisioned in the year 2014.

Contact:

Helen Noehammer, P.Eng. A/Manager, Infrastructure Planning Transportation Services Division Telephone: (416) 392-8340 Fax: (416) 392-4808 e-mail: [email protected]

David C. Kaufman, P.Eng. General Manager, Transportation Services

Barry H. Gutteridge Commissioner, Works and Emergency Services

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List of Attachments: Figure No. 1: Study Area Port Union Road Environmental Study Report