Study Design Report
G.W.P. 663-93-00 Highway 417 (Ottawa Queensway)
From Highway 416 Easterly to Anderson Road
Preliminary Design Study and Environmental Assessment
Executive Summary
The Ontario Ministry of Transportation (MTO), in partnership with Totten Sims Hubicki Associates (TSH), has begun a study of Highway 417 (Queensway) through the City of Ottawa to determine opportunities to maximize the use of the existing facility within the study area. As the study progresses, the Project Team will be identifying short-term and medium-term measures to improve the mobility of people and goods within this corridor by reducing delay and congestion. Other study goals will be to identify safety-enhancing measures and to assess the need for a new interchange at Hunt Club Road. These improvements, once implemented, will help sustain economic growth in the National Capital Region and are in keeping with the Ontario's Smart Growth Initiatives. The study, expected to take about two years, is needed to address current deficiencies of the Queensway and to accommodate future growth in the Ottawa area.
The Queensway study will consider other recent planning efforts and environmental assessments for this area including the just released January 2002 Draft Strategic Transportation Directions for Eastern Ontario and the National Capital Commission's Core Area Concept of Canada's Capital initiative. However, the focus of this particular study is limited to the Queensway corridor only and is not intended to serve as a master transportation study for the Ottawa area. As such, the Queensway study is separate from the Ottawa Ring Road Needs Assessment Study announced by the Ontario government in December 2001.
The Queensway study is classified as a "B" category project under the Class Environmental Assessment for Provincial Transportation Facilities, 2000 (in compliance with the Environmental Assessment Act). This draft study design report outlines the proposed work plan for the Queensway study and includes an initial list of environmental factors, evaluation criteria and evaluation methodology. The report also explains how the public will be involved throughout the study.
The study design report is currently being reviewed by the public and local agencies with transportation interests. Following this review, the report will be revised and finalized and will act as a guide for the balance of the Queensway study.
Table of Contents
1.0 Introduction
2.0 Study Area
3.0 Environmental Assessment Process
4.0 Background
5.0 Study Scope
6.0 Study Issues
7.0 Need and Justification
8.0 Alternatives to the Undertaking
9.0 Alternative Methods
10.0 Consultation
10.1 Public Consultation
10.2 Agency Consultation
10.3 Public Advisory Committee and Municipal Advisory Committee
11.0 Environmental Factors
11.1 Natural Environmental Conditions
11.2 Social Environmental Factors
11.3 Economic Environmental Factors
11.4 Cultural Environmental Factors
11.5 Other Environmental Factors
12.0 Analysis and Evaluation of Alternatives
12.1 Evaluation Criteria
12.2 Evaluation Techniques
12.3 The Selection of the Technically Preferred Alternative
13.0 Preliminary Design of the Technically Preferred Alternative
14.0 Study Schedule
15.0 Property Acquisition
16.0 Summary
1.0 Introduction
The Ministry of Transportation (MTO) in partnership with the consulting engineering firm of Totten Sims Hubicki Associates (TSH) has begun a Preliminary Design Study and Environmental Assessment for Highway 417 (the Queensway) from west of Highway 416 Easterly to Anderson Road. This study will be carried out in accordance with the "Class Environmental Assessment for Provincial Transportation Facilities, 2000" and will identify and present solutions to existing short-term and medium-term needs for this section of the Queensway while other, ongoing studies look at the long term transportation requirements of the City. In addition, the study will investigate alternatives for and recommend an interchange configuration at Hunt Club Road.
The purpose of this Study Design Report is to document:
- Need and justification of the Project;
- The Study Area;
- The Study issues;
- Alternatives to the undertaking and alternative methods of carrying out the undertaking; and
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The Environmental Assessment (EA) process as it applies to this project, including:
- a description of the Class EA Process proposed,
- a commitment to a formal consultation program,
- a description of the studies to be undertaken by experts in specific areas related to the environmental assessment process, and
- the documentation which will be produced as a result of this Study.
This Draft Study Design Report represents the Study Team's perspective at the outset of this planning assignment. This report will be subject to changes and refinements as the project proceeds and in response to comments received throughout the consultation program. It will be circulated to Agencies for comments, and will be available for public scrutiny and comments at the following locations:
- MTO's District Office in Ottawa (530 Tremblay Road 613-745-6841);
- MTO's Regional Office in Kingston (1355 John Counter Boulevard, Kingston 613-544-2220);
- Ottawa City Hall, 110 Laurier Ave.West, Heritage Building, 2nd floor, Ottawa);
- City of Ottawa Libraries (Carp, Manotick, Nepean Central, North Gower, Orleans, St-Laurent, Stittsville, Vanier); and
- TSH Ottawa Office (240 Terrence Matthews Crescent, Kanata 613-592-7070)
Subsequent to a review of all comments received after the first Public Involvement Centre in the fall of 2002, this Draft Study Design Report will be refined and finalized. It will then become the guiding document directing how the balance of the Study proceeds.
2.0 Study Area
The section of Highway 417 to be addressed as part of this study extends from West of Highway 416 Easterly to Anderson Road and is illustrated in Figure 1.
Figure 1 -- Study Area Map
Highway 417 (Ottawa Queensway)
Preliminary Design Study and Environmental Assessment
from Highway 416 easterly to Anderson Road
MTO G.W.P. 663-93-00
The study area is contained within the City of Ottawa. The highway passes through an area characterized in the west end as urbanizing commercial and industrial while the east end is characterized as rural. The central portion of the study area passes through the downtown business core of the City of Ottawa and is a fully mature urban core. Throughout the study area, there also exist substantial pockets of residential developments abutting the Queensway corridor.
Due to the variability in land use throughout the length of the study area, the preliminary design process will be sensitive to all existing commercial/industrial, urban and rural communities and the various water crossings and other environmental sensitivities over the length of the study area. Investigations will initially be carried out within the existing right-of-way. If needed, as a result of the sensitivities and constraints which are identified, investigations will be undertaken in an outwardly expanding fashion until sufficient information is gathered to fully support the evaluation of the various alternatives.
3.0 Environmental Assessment Process
The Environmental Assessment Act RSO 1990 (EA Act) requires that MTO, as Proponent, comply with the requirements of the Act by:
- accurately describing the undertaking;
- considering 'alternatives to the undertaking';
- considering alternative methods for the undertaking;
- consulting with the public;
- detailing impacts and mitigation; and
- documenting all of the above for public review.
The EA Act acknowledges that the requirements for undertakings which are similar in nature and scope can be met through the creation and acceptance of a Class EA document. This document outlines how projects of varying scope can be dealt with to ensure that the environmental objectives of the Act are met. The "Class Environmental Assessment for Provincial Transportation Facilities (2000)" (Class EA) details a process which, if followed for each of a variety of MTO projects, will meet the requirements of the Environmental Assessment Act.
The Class EA document categorizes all MTO undertakings which are covered by the Class EA, into one of four classifications, identified as "A", "B", "C", and "D". Planning studies for new freeway projects must adhere to an individual EA process. Following is a brief description of each category covered by the Class EA:
- Class "A" covers new Provincial Highways and Freeways, Transitways, and Ferryboat Connections;
- Class "B" covers Major Improvements to Existing Provincial Transportation Facilities;
- Class "C" covers Minor Improvements to Existing Provincial Transportation Facilities; and
- Class "D" covers Facility Operations, Routine Maintenance, Administration and Miscellaneous Activities.
Ministry of Transportation Ontario staff have indicated that the Queensway Project is a Group "B" project. A project is classified as a "B" when a number of alternatives exist with varying impacts. The scope of projects so designated is such that the impacts are highly predictable and mitigation is generally considered routine and effective. In order to properly assess these alternatives and receive input from the affected public, the Class EA defines a process that culminates in the production and public review of a Transportation Environmental Study Report (TESR).
Given the location of the study area (City of Ottawa) and the potential extent of the alternative methods of carrying out the undertaking, it is intended that the Class EA Process be harmonized with the requirements of the Canadian Environmental Assessment Act (CEAA, referred hereafter as the Federal EA process). The early and extensive involvement of the Federal Government agencies in the overall study will ensure that the TESR, when published, will meet the requirements of the Federal EA process, including the consideration of cumulative effects. The facilitation of compliance with both pieces of legislation is the object of the Harmonized EA process. Under the Federal EA process, a lead agency within the federal Government is identified and is responsible for the co-ordination of the review.
Environmental work will be undertaken in each stage of the study such that the constraints are identified early and avoidance or mitigation is considered in conjunction with the engineering design work. Avoidance of impact is always more desirable than mitigation.
The site investigations associated with the Environmental Assessment component of this assignment will be undertaken to a sufficient level of detail to allow for the assessment of impacts of each alternative to an equivalent level. Site inventories will be undertaken by experts in the areas of: archaeology, wildlife, noise, vegetation, fisheries, drainage, property contamination, aesthetics and erosion/sedimentation control. These inventories will provide an examination of the existing conditions, sensitivities and the projected conditions. Where an environmental factor is impacted, impact on the existing conditions will be assessed and reviewed with the appropriate approval agency or department to determine if the design requires modification. If impacts to an environmental factor are unavoidable, mitigation measures will be identified.
The inventory and analysis portion of the works will include the activities described in Section 11. Issues have been identified for impact assessment under each of natural, social, economic, cultural and applied environmental factors.
4.0 Background
Highway 417 within the study area is the major east-west provincial corridor in the Ottawa area serving provincial inter-city travel as well as commuter traffic. Traffic volumes are high and are increasing, and already exceed the theoretical design capacity during several hours of the day. As a result, experiences of congestion and associated delays are increasing and are expected to continue to increase, in the absence of significant improvements.
The existing highway is a fully controlled access freeway, which means that access to and egress from the highway are limited to the 20 interchanges located within the study area. The Queensway consists of the following lane arrangement:
- 8 basic lanes from Highway 416 to Pinecrest Road;
- 6 basic lanes from Pinecrest Road to Carling Avenue and Kent Street,
- 6 basic lanes between Kent Street and Regional Road 174; and
- 4 basic lanes east of Regional Road 174 to the study limits at Anderson Road.
In addition to the basic lanes, auxiliary speed change lanes exist between some interchanges.
The Highway 417 corridor from Highway 416 easterly through the heart of the City of Ottawa Central Business District currently experiences considerable congestion during the a.m. and p.m. peak travel periods. Further, communities on the west, south, and east sides of Ottawa are rapidly expanding, and although growth has slowed somewhat in the past couple of years, this growth is expected to continue to occur. This expansion is creating additional demand, which adds to the existing congestion and associated safety concerns.
Current conditions have necessitated a comprehensive operational review of Highway 417 within the study area to determine if the existing infrastructure can be upgraded to accommodate the increased mobility needs. The Ministry of Transportation has initiated this study to determine the need and feasibility of providing additional capacity (person and goods movement) in this corridor. Should capacity improvements be shown to be required as a result of this study, consideration will be given to incorporating the following (and other) traffic management elements; additional general use lanes; High Occupancy Vehicle (HOV) facilities; ramp metering; traffic demand management including Freeway Traffic Management System; etc.
This study will complete the technical analysis needed in determining the extent and timing of short and medium-term improvements to Highway 417 and document the results of the analysis in a Preliminary Design Report and Environmental Assessment. The study will develop several technical alternatives for an improvement scheme that will then be subject to evaluation and refinement by the Project Team based on comments received from agencies and the public.
The study will also identify and address existing ("now") operational concerns, and will identify and address operational concerns that can be expected to arise in the future (by considering the effects of the projected 2006, 2011 and 2021 horizon year traffic volumes). These "concerns" will be identified through an extensive traffic modeling effort that will be undertaken for the Queensway Corridor. This model will be developed/updated by analyzing and incorporating existing traffic, population, employment, and development data from various sources. Where existing data is insufficient to populate the model, then efforts will be undertaken to create it. The traffic model and associated Traffic Report will form a large measure of the technical background for this study, and will be presented to the public at the first Public Involvement Centre to be held later this year and as described in Section 10.
5.0 Study Scope
The scope of this study is limited to investigation of operational, capacity, and safety improvements to the Queensway within the study limits. It is not intended to identify improvements to other facilities, nor is it intended to be an overall transportation study for the Ottawa area. Where improvements to transportation facilities are identified by other studies and/or agencies, their effects on travel demand on the Queensway will be included in the transportation demand model that will be developed/updated as part of this study.
6.0 Study Issues
There are numerous constraints and issues to be considered in developing improvement alternatives within the study area. A partial list includes:
- Sensitivity of the local residents, municipalities and agencies related to expansion of highway facilities (and the desire to promote the use of public transit);
- Sensitivity of the local residents, municipalities and agencies related to the promotion of the City as the Nation's Capital, represented primarily by the National Capital Commission;
- Existing traffic operational problems on Highway 417, generally associated with peak a.m. and p.m. commuter demands;
- Traffic level of service and capacity at ramp terminal intersections;
- Increasing congestion and associated delays;
- Operational problems caused by poor lane continuity, balance, and weaving at various locations;
- Condition of the existing infrastructure, notably several bridges;
- Noise;
- The flexibility required to identify staged interim improvements which provide immediate operational and safety improvements and are mostly salvageable as part of the ultimate highway development; and
- Environmental sensitivity of the various water crossings, the impacts and proposed mitigation associated with platform widening; associated fisheries compensation agreements and the length of time associated with securing those agreements.
The above-noted issues will form an integral part of the investigations and evaluation criteria for this study; other issues may be identified through the public consultation process and will be dealt with by the Study Team as they arise.
7.0 Need and Justification
As presented in Section 4.0 of this report, traffic volumes on this section of Highway 417 have been increasing steadily, largely due to business and residential expansion in adjacent communities. These increased volumes are creating increasing congestion and associated delays, and are adversely affecting the safety of the Queensway. As a result, various operational improvements will be required within the planning horizon of this study. These improvements will be required to address the delays associated with congestion, and to improve the safety characteristics of the freeway. As traffic volumes and demand continue to grow, the delays that are now associated with morning and evening peak hours, will continue to increase. In order to sustain economic growth and provide for the most efficient movement of people and goods possible on this corridor, the Ministry of Transportation has commissioned this study to investigate all reasonable alternatives to improve the operating efficiency of the freeway. The outcome of the study will be an improvement plan that will identify both short-term and mid-term operational improvements that will satisfy the study objective of improved mobility of people and goods.
8.0 Alternatives to the Undertaking
Throughout the course of this study, the Project Team will investigate reasonable alternatives to address any deficiencies identified through the course of the study. During the initial stages of the study, alternatives to the undertaking will be developed. These broad alternatives will be evaluated based on environmental, engineering and cost factors as well as their ability to correct identified deficiencies. The alternatives generally include other modes of travel and the "Do Nothing" alternative. The favoured alternative to the undertaking will be carried forward and broken down into several technical design alternatives.
Examples of criteria typically used in the comparative analysis are listed as follows:
- ability to solve transportation problems;
- compatibility with existing and future transportation systems;
- comparative analysis of environmental effects in terms of the natural, social, economic and cultural environment;
- comparative analysis of engineering features;
- comparative analysis of costs; and
- measure of mitigation effort required for the alternatives.
Examples of "Alternatives to the Undertaking"
- Do Nothing;
- Alternative Modes (road, bus and rail transit, water, air);
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Alternative Road Solutions, including:
- Traffic management, including Freeway Traffic Management Systems;
- Diversion of traffic to other roads;
- Transportation Demand Management including carpool lots;
- Correction of a deficiency elsewhere in the system;
- Improvements to the existing facility;
- Realignment; and
- New highway.
The focus of the Queensway study is the investigation of improvement alternatives for the freeway facility, and not a broader regional transportation study, consequently we expect that "Alternative Road Solutions" will be the only "Alternative to the Undertaking" evaluated in detail.
The recommended "Alternative to the Undertaking" will be carried forward to the identification of the "alternative methods" as described in the following section.
9.0 Alternative Methods (Design Alternatives)
Following the identification of the "Alternative to the Undertaking", alternative methods of carrying out the undertaking will be evaluated. The "Alternative Methods" generated will be based on the transportation and environmental conditions found within the study area. A coarse screening will be undertaken which will document why alternative designs that are not feasible or have significant environmental impacts have been eliminated.
Examples of Alternative Methods of carrying out the undertaking may include:
- alignment revisions;
- construction of additional through lanes;
- additional/dedicated lane/median requirements;
- cross-section alternatives;
- intersection/interchange requirements;
- Freeway Traffic Management Systems e.g. changeable message signs, traffic flow detectors, cameras;
- structural requirements including culverts, bridges, etc.; and
- other requirements, e.g. illumination, signing, and construction staging.
10.0 Consultation
The involvement of the public is very important to the EA process. TSH will solicit, respond to, and incorporate into the planning process, input from both the general public and government agencies at various levels. Input will be sought early in the study and will continue to be encouraged throughout. Our consultation will be in compliance with the requirements of the French Language Services Act, and as such, any correspondence received in French will be replied to in kind, and French speaking callers will be directed to French speaking staff. Bilingual staff will also attend each PIC.
Our consultation plan consists of the following sequential items:
- Agency contact letters;
- Letters delivered to residents and businesses within the study area advising of the Study and providing contact information;
- Ontario Government Notice advising of the commencement of the study;
- Establishment of Municipal and Public Advisory Committees (MAC and PAC) to facilitate full and open identification of concerns and evaluation of alternatives, with regular meetings held throughout the duration of the study;
- Public Involvement Centre #1 to be held in the fall of 2002 to review preliminary drawings, present preliminary background inventory work, the proposed evaluation techniques, and to seek input on this Study Design Report and the overall perceived needs within the study area;
- Public Involvement Centre #2 to be held in the Spring of 2003 to present and seek public comment on the alternatives and the preferred alternative as identified by the study team;
- Public Involvement Centre #3 to be held in mid 2003 to present and seek public comments on the technically preferred alternative as presented at a preliminary design level of detail; and
- a Notice advising of the completion of the Transportation Environmental Study Report and where it can be reviewed.
Further details on the proposed Agency and Public consultation approach is provided below.
10.1 Public Consultation
In order to ensure that the general public is aware of the study, Ontario Government Notices will be placed in various local newspapers. Public Notices will be given at key points in the study specifically:
- at its commencement;
- prior to each Public Involvement Centre (PIC) advising of the location and time; and
- at the release of the Transportation Environmental Study Report (TESR) for the 30-day public review period, identifying the locations where it can be reviewed.
Prior to each PIC, brochures will be delivered to residents and establishments located within the first two rows of the Queensway Corridor and mailed to all members of the public and groups who have asked to be included on the project mailing list, to provide information about the study to the members of the public who have the potential to be most affected.
At each PIC, staff from MTO and TSH will be available to discuss the project and answer questions. Bilingual staff from the Study Team will also be in attendance. Members of the public will be encouraged to provide written comments that will be incorporated into the public record, while recognizing and protecting personal privacy. Each contact will receive an individual response.
10.2 Agency Consultation
The early involvement of the local municipalities and those agencies with interest in the study is necessary to ensure that the study proceeds efficiently. Prior to the Notice of Study Commencement, the local municipality and potentially interested agencies will be contacted by letter advising them of the study and requesting their participation.
Prior to each PIC, the municipality and agencies will be advised of the PIC and invited to a session immediately preceding each PIC which will afford them an opportunity to review the presentation material and discuss study details with the project team. Prior to the third PIC, at which time the Technically Preferred Alternative will be presented in a preliminary design level of detail, TSH will make formal presentations to the municipal council. Other formal and/or informal presentations will be provided as requested.
The availability of TSH staff to discuss the project will be stated in all notices and correspondence with telephone numbers, mail and E-mail addresses provided.
10.3 Public Advisory Committee and Municipal Advisory Committee
As a mechanism to facilitate the receipt of input and the dissemination of study information, a Public Advisory Committee (PAC) and Municipal Advisory Committee (MAC) will be formed and managed throughout the process of the study. In this large project involving many public interest groups, these two committees will facilitate open and easy communication with the public, municipal council, and the NCC, respectively. The MAC is envisioned to function as the window of information to and from Ottawa Council and Senior Executives of the National Capital Commission with the expectation that its members will be keeping senior staff aware of the progress and issues of the study, expediting support at the end of the study.
11.0 Environmental Factors
As noted in previous sections, the study area is located within the City of Ottawa. The highway passes through an area characterized in the west as urbanizing commercial and industrial, eventually changing as one travels east to urban lands and then to rural lands, east of the interchange with Anderson Road. Pockets of residential developments are located throughout the study area.
The inventory of the natural environment will include an initial reconnaissance and a secondary source information review primarily from the Ministry of Natural Resources (MNR) and the Rideau Valley Conservation Authority (RVCA), and where necessary, detailed field investigations. The initial reconnaissance and secondary source investigations will determine the significance of the natural resource features and the potential for impact along the corridor. With the majority of the study in an urban setting, the most significant natural environmental impact is anticipated to be at watercourse crossings. In the rural section, impacts have the potential to affect a more diverse environmental setting. If major impacts are anticipated, a detailed investigation will be conducted. The information collected will be reported in a specialist's report for each of the environmental factor specific items identified as relevant for this assignment and summarized in a "Summary of Existing Conditions Report".
The impacts of the preferred alternative will be compared to the "Do Nothing" alternative within each of the areas described in the following subsections.
11.1 Natural Environmental Conditions
Natural environment conditions that will be reviewed in detail are described as follows:
Fisheries and Aquatic Habitat
More than a dozen watercourse crossings, apart from the Rideau River and Canal crossings, have been identified within the study corridor. This includes lengthy sections for several watercourses where they closely parallel the freeway. These watercourses have been identified as warm water streams with the exception of Still Water and Graham Creeks, which are considered cool water systems. Each of these watercourse crossings will be inspected to determine their fish habitat status within the Highway 417 right-of-way. Many of the easterly watercourses associated with the Ramsay Creek system have been channelized in the past for agricultural purposes. The Rideau River and Canal have had their banks stabilized and reinforced in many locations as a result of growing urbanization. Still Water and Graham Creeks have significant downstream erosion problems, also associated with urbanization as well as their unstable founding Leda clay soils.
A preliminary site reconnaissance will be undertaken in order to determine aquatic habitat status of the existing watercourse crossings. If secondary source information is lacking or out of date, detailed field inventories will be completed in accordance with the Ministry of Natural Resources (MNR) and MTO document "MNR/MTO Fisheries Protocol" and MTO's "Environmental Manual -- Fisheries" (1994). This will include collection of information on general water quality, temperature and flow, geomorphological characteristics, identified erosion problems, riparian and aquatic vegetation and bottom substrate. Electrofishing equipment, nets and fish traps will be used to capture representative resident fish species for identification. Fisheries and aquatic habitat characteristics will be mapped for required reaches upstream and downstream, particularly in areas where structure improvements are expected to affect water resource features. A Fisheries Report will be prepared upon completion of field studies for inclusion in the "Summary of Existing Conditions Report" and for circulation to MNR subsequent to MTO approval. The report results will also be summarized in the Preliminary Design Report.
Consistent with the MNR/MTO Fisheries Protocol and in consultation with MNR, locations will be determined where a harmful alteration, disruption or destruction of fish habitat may occur as a result of highway/structure improvements. In these cases, TSH will work with MTO and MNR staff to develop conceptual "Fish Habitat Compensation Plans" for future presentation to the Department of Fisheries and Oceans (DFO). Mitigation/compensation recommendations for each of the affected sites will be documented in the fisheries report. Pertinent information on impacts/mitigation will be provided to TSH's environmental planner for the required concerns and commitments table.
Wildlife
The fully urbanized westerly study area will be frequented by those small mammals and songbirds which are comfortable in human surroundings (e.g., skunks, raccoons, squirrels, foxes, jays, sparrows, doves). They frequent stream corridors and often utilize cross culverts to traverse the Highway right-of-way. As one proceeds east of the urbanized area, fence rows and small woodlots characteristic of the rural agricultural community become more prominent. These landscapes offer habitat features favourable for many additional terrestrial and avian wildlife species. Smaller mammals frequently use highway cross culverts in these rural settings as travel corridors as well. MNR and the RVCA will be consulted and supplementary field investigations will be undertaken as necessary to identify resident wildlife species adjacent to the study corridor and their significance. This information will be utilized with comparison of the impacts of the various alternatives on local wildlife populations and habitats.
Vegetation
Following discussions with MNR and RVCA, a vegetation inventory will be conducted in the spring of 2002. The survey will be repeated again in mid summer. This inventory will include the following activities:
- identify vegetation units, including environmentally significant areas, forest management areas (forest research areas, seed orchards, seed production and collection areas, plantation areas), and marketable (mature or future) crops of standing timber
- identify areas of rare or endangered species
- identify any significant individual tree specimens (e.g. on "honour roll of trees")
The assessment of impact will determine the following:
- encroachment on, or severance of, significant vegetation units;
- rare or endangered species affected;
- loss of areas of any rare or endangered species;
- detrimental effects to significant vegetation units and to areas of rare or endangered species; and
- loss of/effects to significant individual specimens.
This information will be used in the comparison of the impacts of the various alternatives on local/significant vegetative features.
Surface Water
Following discussions with MNR, RVCA, and the City of Ottawa, detailed investigations will be conducted in conjunction with the drainage study to identify the following:
- drainage patterns, major watercourse tributaries and drainage basin boundaries of the Still Water Creek, Graham Creek, the Rideau River and Ramsay Creek systems;
- all crossings, close paralleling, complete coincidence of/with surface water; and
- locations and usage of private/municipal water intakes that might be significantly affected (eastern section).
The impact assessment will determine the following:
- surface water bodies/watercourses affected by crossings
- encroachment on, or severance of, headwater areas
- ealignment/relocation/channelization required
- alterations in watercourse depths, flow rates, flow velocity and floodplain area
- interception and diversion of surface water flows
- likelihood and significance of alteration of surface water quality through release of contaminants (summarized as high/medium/low)
- likelihood and significance of interference with private/municipal water intakes
Mitigation measures will be outlined to minimize significant surface water impacts. This information will be used in the comparison of the impacts of the various alternatives on local/regional watercourses with regard to both quantity and quality.
Groundwater
While it is highly unlikely that the recommended design will, in any way, impact on groundwater quality or quantity, the study team will remain aware of the value and sensitivity of this resource and assess impacts, suggesting mitigation if warranted, and consider any potential effects during the assessment of alternatives.
11.2 Social Environmental Factors
The social environmental factors will be assessed using secondary source contacts, field reviews, and modeling. Each is described as follows:
Landscape Architecture/Aesthetics
Aesthetics is seen as a major issue when any construction is undertaken on Highway 417, the primary access to the Nation's Capital. This will require that the landscaping component and other design elements of this project be carefully developed and well presented to the public, NCC, and the City of Ottawa.
To this end:
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An inventory of the existing conditions within and adjacent to the study area will be completed. A presentation drawing will be prepared for meetings with the client, stakeholders and community members.
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An integral component of the assessment of the impact of the Queensway is the perception of the occupants in the vehicle travelling along the corridor, as well as from the adjacent lands. A visual analysis drawing will be completed which identifies the opportunities and constraints within and adjacent to the corridor including existing vegetation, building facades, signage, lighting, etc. The sequence of elements, in both east and west directions, shall be studied to garner a clear understanding of aesthetic and unique qualities of the corridor.
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A meeting will be arranged to receive feedback, comments and direction at the completion of the inventory and analysis phase of work.
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Based upon the analysis work and the preliminary concepts developed for the number of traffic lanes, a landscape concept plan will be prepared for review with the design team and stakeholders. It will integrate the landscape component within proposed lanes and ramps and the context of the Queensway right-of-way. Issues defined during the analysis of the physical environment will be addressed, and discussions with the approval agencies, including the NCC, will be held to receive comments and feedback.
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Based upon the direction and comments received during the discussions for the concept plan, the landscape Master Plan will be developed. This will define the design principles for the corridor developed during the discussions and negotiations with the stakeholders. Locations for mitigation for proposed construction, integration of the diverse elements required within the corridor, and the locations to provide greening will be included. This plan will be completed in conjunction with typical cross sections to clearly demonstrate to the public and stakeholders the design developed by the team.
Highway Noise
Highway noise along the 417 corridor has been an issue for many years with a number of sites qualifying for noise abatement measures under MTO's retrofit program. Recognizing this sensitivity, TSH will be quantifying existing noise levels and noise levels which will be expected due to traffic volume increases over the study period, without any changes to the highway design. These will then be compared to the noise levels that will result from the preferred alternative. This will facilitate the assessment of the level of impacts and viability of mitigation.
The noise impact assessment will be completed in two stages following the procedures outlined in the Ministry's Directive A1, MTO/MOE Noise Protocol, and MTO Noise Manual. In Stage I, sound contours will be developed using computerized acoustical modelling (Stamson Version 4.1). These projections, at 5 dBA intervals, will reflect changes due to topography and traffic volumes without mitigation measures, for the mainline and interchanges. The changes in sound levels at noise sensitive areas (NSAs) will be documented using 24 hr equivalent noise levels (Leq) predicted 10 years following the construction of the improvements. The Leq is the noise measure which has been shown to most closely quantify human perception of changes in noise levels.
A Stage II assessment will be made for receiver sites where the recommended alternative will result in a noise level increase of greater than 5 dBA, 10 years after completion. This will assess mitigation (noise control measures within the right-of-way) for noise sensitive receivers along the preferred alternative including freeway widening and interchange modifications. The effectiveness of mitigation measures at these sites will be made using computerized acoustical modeling (STAMINA 2.0) software.
The analysis will be conducted to determine:
- future noise levels along Highway 417 and the surrounding study area with and without the proposed improvements;
- Noise Sensitive Areas (NSAs) and receiver sites selected within each NSA; and
- an assessment of the sound level changes resulting from the proposal design.
- Potential mitigation measures to address construction noise concerns in NSAs will also be identified.
The Noise Report will document:
- a description of the NSAs in the study area;
- sound level predictions for preferred alternative;
- NSAs predicted to experience increases in noise levels;
- an assessment of the need for and effectiveness of noise mitigation;
- analysis of construction noise impacts and the need for controls in the construction contract; and
- construction noise complaint process.
Community/Recreation
The review of secondary source information (official plan and comprehensive zoning by-law) from the City of Ottawa will identify the following:
- applicable official plan zoning(s) for property encroached upon or abutted;
- residential neighbourhoods encroached upon or abutted;
- rural communities encroached upon or abutted;
- interference with vehicular and pedestrian access to residential neighbourhoods;
- homes displaced;
- major community facilities/parks/recreational and bicycle trails encroached upon or abutted;
- interference with vehicular and pedestrian access to major community facilities/parks;
- major community facilities/parks displaced;
- municipal utilities and residential sewage systems encroached upon; and
- emergency response routes and bus routes severed/extended.
Impact assessment will determine the following:
- incompatibility with municipal official plan and development proposals;
- severance of residential neighbourhoods and rural communities;
- displacement or extraordinary isolation of homes;
- overall effect on access to residential areas and rural communities;
- overall degree of disruption to residential neighbourhoods and rural communities;
- severance of major community facilities/parks;
- displacement of major community facilities/parks/recreational and bicycle trails;
- overall effect on access to major community facilities/parks;
- overall degree of disruption to major community facilities/parks; and
- disruption of municipal utility and residential sewage systems; and emergency response routes and bus routes severed.
Mitigation measures will be outlined to minimize significant community/recreation impacts.
Air Quality
The January 2002 Strategic Transportation Directions for Eastern Ontario Draft Report recognizes that the transportation sector is a leading cause of smog gases and a major contributor to greenhouse gases and climate change. Since the Ottawa Queensway traverses a significant length of urban land use, air quality will be considered as part of the study as it progresses and documented as part of the Environmental Assessment for this study.
Some of the potential mitigative measures that we will be investigating include:
- new or expanded commuter parking facilities,
- the potential for increased carpooling, High Occupancy Vehicle (HOV) and reserved bus lanes; and
- highway capacity improvements, road rehabilitation, and Intelligent Transportation Systems (ITS).
All of the foregoing measures are intended to relieve traffic congestion thereby reducing vehicle emissions.
11.3 Economic Environmental Factors
Commercial/Industrial
In a significant portion of the study area, commercial and industrial land uses dominate. An investigation will be conducted as required to identify the following:
- commercial areas encroached upon or abutted;
- major vehicular and pedestrian access to commercial areas;
- commercial businesses displaced;
- industrial areas encroached upon or abutted;
- major vehicular and pedestrian access to industrial areas; and
- industrial businesses displaced.
The impact assessment will determine the following:
- displacement of commercial businesses
- effect on overall access to commercial areas
- effect on highway exposure for commercial areas
- displacement of major industries
- effect on overall access to major industrial areas
- effect on overall travel time and distance for local manufacturers and shippers
- effects on regional distribution of manufacturing
- overall effects on regional and local economy
Property Waste and Contamination:
There are sites within the project with a high probability of contamination as a result of historic or ongoing uses, such as gasoline storage or manufacturing. A preliminary site screening (as per Directive DST-B-42, and MTO Technical Guidelines for the Identification, Assessment and Remediation of Contaminated Property) will be conducted at the beginning of the project to determine the potential for problems due to the presence of waste material or property contamination. This survey shall as a minimum include the following:
- external communication directed to MOE, MCCR, MNR, and Municipal agencies shall specifically request any information (e.g. approvals, permits, inspections, complaints, charges, compliance orders, previous uses, etc.) that might identify waste or contamination problems;
- a field survey to identify any current land uses and site characteristics normally associated with the presence of waste material or property contamination; and
- an evaluation of properties required relative to the probability of the presence of waste or property contamination.
Impact assessment will determine the following:
- number of properties required having known or highly probable waste/contamination problems
- overall significance of property waste/contamination problems
- need for Phase I, II or III Environmental Site Assessments
Where the selected design involves acquisition of property where waste material and property contamination have been identified, or found to be of high probability, a strategy for further action will be provided to MTO as soon as the assessment is complete, in order that all implications can be considered during the comparison of alternatives.
11.4 Cultural Environmental Factors
Archaeology and Cultural Heritage
Following the completion of all required field work, a detailed archaeological license report of all Stage I and Stage II activities undertaken will be provided to fulfil the requirements of the Ontario Environmental Assessment Act (R.S.O 1980) and the Ontario Heritage Act and Reg. 212/82. This report will summarize the physical setting of the study area and the Stage I background information regarding known archaeological sites and the prehistoric and early historic stages of human settlement for the study area. In those areas which the Stage I study identified as requiring further investigation, the Stage II survey methodology, interval employed, and field conditions at each segment tested along the Highway 417 right-of-way will be described and illustrated. All significant artifacts recovered during Stage II activities will be analyzed and representative photographs provided. The final section of the archaeological license report will provide the results of the assessment, any mitigative options, future assessment considerations, and recommendations for review by MTO and the Ministry of Tourism, Culture and Recreation. The report will also identify any areas within or adjacent to the Highway 417 right-of-way where significant heritage resources may require protection under special contract provisions. The Built Heritage Resources segment of the report will include standardized survey documentation of any heritage buildings and historical landscapes within the project limits. The results of the assessment and recommendations will be forwarded outlining potential impacts to these resources (i.e., major, moderate, minimal) during proposed construction activities.
11.5 Other Environmental Factors
Erosion and Sedimentation Control
An investigation will be conducted to identify areas of highly erodible soils and unstable Leda clays associated with areas (such as large cut slopes, embankment fills, and watercourse channels) where there is a high potential for sediment discharge to sensitive areas, such as valleys, wetlands and water courses. This information will be extremely useful to document for the detailed design phase to ensure that grading, drainage, and structural operations during construction will not result in sedimentation of sensitive areas, including the watercourse crossings encountered within the study limits.
Management of Excess Materials
An investigation will be conducted to identify and document the major sources of surplus and/or unsuitable materials and approximate quantities and to identify a strategy for how these materials will be managed.
Stormwater Quality Management
Recognizing the constraints and sensitivities of the study area, a preliminary stormwater management design will be prepared in accordance with all current Ministry directives, guidelines, policies and procedures as well as those of other agencies with an interest in stormwater management (MNR, MOE, RVCA).
The plan will draw from existing hydraulic information to determine the appropriate strategy for inclusion in the Preliminary Design. The background information will be matched to alternatives for highway reconstruction/upgrading and for the selected alternative, a strategy for stormwater quantity management will be prepared. Some storage and flow conveyance upgrades may be necessary for the ultimate development. Preliminary design details will be prepared where required for clarity of presentation of recommended upgrades.
Any significant increase in paved surfaces will require that a plan for stormwater quality control be prepared. In this regard, MNR and the Rideau Valley Conservation Authority (RVCA) will be contacted for review and approval and relevant background information collected on such issues as receiving watercourse sensitivity, local soil drainage characteristics and any adjacent stormwater management facilities. Feasible alternative Best Management Practices (BMP) measures will be reviewed and evaluated based on targeted pollutant removal effectiveness, feasibility of implementation on this highway project, expected costs, ease of maintenance and other relevant factors. A strategy will be developed for both temporary (during construction) and permanent facilities, preferably using components of the ultimate facilities through the construction period. The recommended integrated stormwater management strategy will be prepared at a level of detail for incorporation into the detailed design for specific sections of highway.
12.0 Analysis and Evaluation of Alternatives
All of the information gathered from secondary sources and expert field assessment will be utilized to detail the impacts of the various alternatives. This comparison will rank the alternatives with regard to environmental impacts. The alternatives can then be compared to each other on the basis of impacts, benefits, and cost.
The key principles of the Environmental Assessment Act and MOE's Interim Guidelines on Environmental Assessment Planning and Approvals for the evaluation portion of the Environmental Assessment Process are that the process be reproducible, accountable and traceable. The formal evaluation methodologies proposed for this project will allow these key principles to be affirmed.
12.1 Evaluation Criteria
The initial task in the evaluation process will be to develop suitable, site-specific evaluation criteria.
The MTO/TSH study team will select these criteria groups and associated sub-criteria used for the evaluation process, consisting of staff with expertise in a diverse range of professional backgrounds.
The evaluation criteria will be presented to the public at the first PIC, and following the consultation, review, and comments, will be accepted as describing the broad definition of the environment to be evaluated. Potential factors include traffic and transportation; land use and property; natural environment; social and cultural environment; and cost.
Within each of these factors, sub-factors will be identified to describe and measure the impact of alternatives. The sub-factors will be initially developed from a long list created by the study team. Additional sub-factors will be added or deleted during briefing meetings with external agencies and through public input.
One test that will be used when considering whether to accept or reject a sub-factor will be to assess if there are meaningful differences between the alternatives that are to be evaluated. The study team will have to agree that the difference is meaningful and that the sub-factor actually describes part of the natural, social, economic or cultural environment that should be included in the decision-making process. (Once these criteria have been endorsed, they will be used to evaluate the alternatives).
Following is a preliminary list of Evaluation Criteria which the project team has developed. It will be revised and updated as the project proceeds in response to the generation/receipt of new information and comments from the public and agencies.
Table 1 -- Preliminary Long List of Evaluation Criteria
Criterion: Traffic and Transportation
| Sub-Criteria | Measure (unit) |
|---|---|
| Safety | Quantified safety improvement (Total cost calculated by reduction in collisions times severity times cost) |
| Level of Service -- congestion, mobility | Quantified improvement measured through improvement in LOS and calculated reduction in delay |
| Highway Design Standards | Ability to meet appropriate freeway design standards of 120 km/hr |
| Ability to Stage Construction | Impact of Construction on highway operation |
| Compatibility with adjacent roadway sections | System continuity |
Criterion: Natural Environment
| Sub-Criteria | Measure (unit) |
|---|---|
| Wildlife | Area of Upland Habitat (ha) |
| Significant Species | Regionally Significant Fauna Species Impacted/ #'s and area (ha) Regionally Significant Flora Species Impacted |
| Significant Natural Areas | Watercourses/ #'s and area (ha) Upland Areas (ha) |
| Stormwater Management | Stormwater Quality (BMP) Measures Available Stormwater Runoff/ cubic meters |
| Fish Habitat | Area of In-Water Construction (ha) Covered Areas (ha) Feeding Areas (ha) Spawning Areas (ha) Rearing Areas (ha) |
Criterion: Social Cultural Environment
| Sub-Criteria | Measure (unit) |
|---|---|
| Noise Levels |
Number of Noise Sensitive Receivers (NSAs) with 0-5 dBA increases
Number of NSAs with 5-10 dBA increases Number of NSAs with increases greater than 10 dBA |
| Archaeology | Area of moderate/high archaeological potential (ha) |
| Heritage Resources | # of heritage features impacted |
| Bus Routes | Minimal disruption or improvement to existing service /change in travel time |
| Emergency Vehicles | Minimal disruption or improvement to existing service/ change in travel times |
| Planning Documents | Conformance with Existing and Future Development (H/M/L) |
| Recreational Resources | Facilities/uses impacted |
| Community Impacts | Duration of Community Disruption (days) |
Criterion: Land Use and Property
| Sub-Criteria | Measure (unit) |
|---|---|
| Agricultural | Area of Class 1, 2, 3, impacted (ha) |
| Commercial/Industrial |
Property required (ha)
# of businesses impacted # of homes affected |
| Residential | Property Required (#'s) |
Criterion: Cost
| Sub-Criteria | Measure (unit) |
|---|---|
|
Construction Cost
Property Costs |
Dollars |
As previously noted, the above list is preliminary in nature and will be refined with the input of the agencies and the public.
12.2 Evaluation Techniques
The results of the Impact Evaluation described previously will be input into the Multi-Attribute Trade-Off System Evaluation Methodology.
Multi-Attribute Trade Off System (MATS)
This method is consistent with current MTO and MOE practices for the evaluation of project alternatives. MATS is one of the clearest, most versatile and most comprehensible evaluation methods available for assessing alternatives, and it will allow the study team and public an opportunity to assess the trade-offs involved in the evaluation and the use of this information in the decision-making process. The utilization of MATS will avoid many of the pitfalls associated with qualitative assessments as it is comprised of an analytical approach that measures scores based on mathematical relationships to minimize subjectivity. In other words, it is a traceable, reproducible, and defensible system used to make an educated selection amongst competing alternatives.
For the MATS evaluation, a linear additive model will be used to generate scores for the individual criteria (criteria and sub-criteria) for each alternative being assessed. Function forms (graphs) will be developed for the scores that will be based on a quantitative measure using a utility scale that ranges from zero to one. For each of the criteria and sub-criteria, weightings will be then be applied which are to be derived from engineering judgement involving round-table discussions. Based on the individual scores established for the factors and sub-factors combined with the assigned weightings, a total score will then be calculated for each alternative.
One of the advantages of the MATS process is that it has the built-in flexibility of undertaking sensitivity testing by changing the various weights assigned to the criteria and/or sub-criteria. This will allow the option to examine what changes would be necessary to make alternatives equivalent in terms of their final scores. Typically, the alternative which scores (or ranks) the highest with the various weightings (i.e. sensitivity tests) is considered the preferred alternative. This type of sensitivity testing will provide useful information for those who may be directly concerned with the implementation of a particular alternative. For this study, sensitivity testing will be a fundamental and routine part of the evaluation process.
12.3 The Selection of the Technically Preferred Alternative
The Technically Preferred Alternative will identify the preferred geometric design, taking into account the technical and financial analysis, environmental considerations and comments of all study participants. The Project Team's Preferred Alternative(s) will be presented to the Public, for review and comment at the second Public Involvement Centre and the Preliminary Design of the Technically Preferred Alternative will be presented at the third and final PIC.
13.0 Preliminary Design of ther Technically Preferred Alternative
The public will be afforded an opportunity to review and comment on the Preliminary Design of the Selected Alternative at the third and final Public Involvement Centre. Following this, a Transportation Environmental Study Report will be produced and made available for public review for a period of 30 days. During this period any member of the public may request that the Minister of the Environment redesignate the project and require that it undergo an Individual Environmental Assessment if they feel that all of the issues have not been adequately dealt with.
14.0 Study Schedule
Following are the proposed schedule milestones for this study:
| Activity | Target |
|---|---|
| Study Notification | July 2002 |
| Establish MAC | May/June 2002 |
| Establish PAC | July/August 2002 |
| Prepare traffic models and traffic report | March - September, 2002 |
| Environmental Inventories | May - August 2002 |
| Public Involvement Centre #1 | Fall 2002 |
| Develop Alternatives | Fall/Winter 2002 |
| Select Project Team's Preferred Alternatives | Fall/Winter 2002 |
| Value Engineering Study | Prior to PIC #2 |
| Public Involvement Centre #2 | Spring 2003 |
| Select Technically Preferred Alternative | Spring 2003 |
| Develop Preliminary Design | April 2003 - June 2003 |
| Public Involvement Centre #3 | Mid 2003 |
| Revise Preliminary Design as required | July - September 2003 |
| City of Ottawa Council Presentation | Fall 2003 |
| Prepare documentation including TESR | September - October 2003 |
| File TESR for Public and Agency Review | Late 2003 |
| Complete Study | December 2003 |
15.0 Property Acquisition
Should this study identify the need for additional property, then the property acquisition process will commence once the preliminary design is complete and the TESR has been approved. MTO will meet with affected property owners once the details surrounding the acquisition have been determined.
16.0 Summary
This report documents the study team's proposed work plan with respect to an Environmental Assessment and Preliminary Design Study for improvements to Highway 417 from west of Highway 416 easterly to Anderson Road. Comments on this plan are welcomed and may be addressed to the following:
|
Mr. Brian Ruck, P.Eng. C.V.S.
Phone: 1-800-668-1983
|
Mr. David Lindensmith, P.Eng.
Phone: 1-800-267-0295
|
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