Windsor Gateway: An Action Plan for a 21st Century Gateway
Canada-Ontario Joint Management Committee
November 25, 2002
Honourable Jean Chrétien
Prime Minister of Canada
Office of the Prime Minister
80 Wellington Street
Ottawa, ON
K1A 0A2
Honourable Ernie Eves
Premier and President of the Executive Council &
Minister of Intergovernmental Affairs
The Executive Council Of Ontario
Legislative Building, Room 281
Queen's Park
Toronto, ON M7A 1A1
Dear Prime Minister Chrétien and Premier Eves:
The Canada-Ontario Joint Management Committee has worked over the past 60 days to identify potential projects, consult with stakeholders and the public, and prepare a proposed Action Plan for the Windsor Gateway, as set out in the Memorandum of Understanding signed on September 25, 2002. Pursuant to that mandate, we are pleased to provide the attached Action Plan for the consideration of the federal and provincial governments.
Numerous proposals were presented to the Committee as to how to ease congestion and increase efficiency at this essential border crossing. The proposed Action Plan represents the Joint Management Committee's best advice on a balanced approach to address the diversity of opinions and interests on this matter, within the context of a strategic vision for the Gateway.
The Committee worked in an integrated manner, and at all times, maintained a positive exchange of ideas, co-operation and mutual support. We also enjoyed good cooperation and input from stakeholders, the public, and local municipalities.
We trust that the information enclosed will be of value to you, and we collectively thank you for the opportunity to work on this important project.
Yours sincerely,
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Phil Ventura, Assistant Deputy Minister
Denis Lefebvre, Assistant Commissioner
Christine Nymark,
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Fareed Amin, Assistant Deputy Minister
Geoff Hare, Vice-President
Bob Seguin, Assistant Deputy Minister
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Table of Contents
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Context
- Economic Importance of Gateway
- A Complex Environment
- How We Got Here
- Need for Short, Medium and Long Term Strategies
- MOU Terms of Reference
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Input
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Measuring Success
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Proposed Action Plan
- Outcomes
- Improved Border Processing
- Effective Use of Technology and Traffic Management
- Investments in Infrastructure Improvements
- Commitment to Ongoing Coordination
- Moving Forward
List of Maps
Appendices
1. Context
1.1. Economic Importance of the Gateway
The Windsor Gateway is a vital transportation artery between Canada and the United States. This border functions as the busiest international trade corridor in North America, handling about 30% of the two-way flow of Canada-U.S trade by value, and about 25% by volume.
The Windsor Gateway is of strategic importance to the national, provincial and regional economies and as such, demands action that shows leadership by the governments of Canada and Ontario. Up to 1 million jobs in Ontario depend on exports to the United States, and many key industries rely on the smooth operation of the gateway for their continued success. Congestion in this area has caused major concern among industry and within the community. A healthy trade corridor will ensure future growth and investment opportunities in southwestern Ontario. At the same time, resolving the congestion issue at the border crossings will require difficult choices as all solutions involve impacts on local communities.
The Windsor Gateway needs to be viewed as a system with several crossings including the Detroit-Windsor Truck Ferry, the Ambassador Bridge, the DRTP Rail tunnel and the Detroit-Windsor car tunnel and many inter-related elements such as infrastructure, technology and border processes.
1.2. A Complex Environment
The fundamental problem at the Windsor Gateway is the absence of a direct highway connection to the border. There is no easy solution to this problem. The area between Highway 401 and the border has been largely built up over time and is surrounded by residential and commercial development.
While there is consensus on the need for a direct highway connection, there is no consensus on how to achieve it and where it should be located. A variety of interwoven interests reveal the complexity involved in seeking resolution. Solutions must take into account that local municipalities have not planned a direct connection, and that business is relying on senior levels of governments to solve the problem. Proponents seeking the support of decision-makers are bringing competitive proposals forward. Meanwhile, local communities are concerned about the neighbourhood impacts of any decisions. Senior governments bear responsibility for ensuring the balance between public and private interests. Consideration must also be given to legislated processes such as federal and provincial Environmental Assessment requirements and land acquisition.
Leadership is required to make the tough but critical decisions to ensure that the situation at the border does not limit economic growth and competitiveness.
1.3. How We Got Here
Windsor is the only major crossing along the Canada-U.S. border without a direct highway connection. Decades ago, the decision was made to stop Highway 401 outside of the City of Windsor, reflecting the priorities of the day. As a result, Highway 3/Huron Church Road became the main link from the 401 to the border, even though it was not designed as an international thoroughfare.
The efficient movement of people and goods has been impeded by the historical decision which left Highway 3/Huron Church Road to function as a combined local, international, passenger and commercial route. There are more traffic lights on the 12 kilometres of Huron Church Road/Highway 3 than all the rest of the Toronto-Windsor-Detroit-Florida trip combined (2,000 km).
Conflicts have arisen between users as truck traffic heading for the border depends on unimpeded movement, while business and tourism operators located along Huron Church Road/Highway 3 benefit from local and international passenger traffic that can stop along their route. At the same time, truck traffic volumes impact the quality of life for residential neighbourhoods. Residents draw attention to increased noise levels, and health and s afety concerns that result from the congestion along Highway 3/Huron Church Road.
Regardless of the broadly based benefits of any direct connection between the 401 and the border, there will also be local concerns about the impacts on communities, businesses, and properties.
Another contributing factor to the challenges of managing the Windsor Gateway is that multiple jurisdictions are responsible for transportation and border infrastructure. The federal government has authority over rail, air and border issues, Highways 3 and 401 are under provincial ownership, and some funding is provided for Huron Church Road under the provincial connecting link program. Arterial roads are divided among the county, townships, and the city. The city is also responsible for Huron Church Road and owns the Canadian half of the Detroit-Windsor car tunnel. All border crossings are owned and/or operated by the private sector. The existence of so many overlapping authorities in the Windsor Gateway has made coordination of activities difficult.
Figure 1 - Current Crossings at the Windsor Gateway
Click on map for enlargement (85 KB)
1.4. Need for Short, Medium and Long Term Strategies
There are currently a number of complementary initiatives underway that will benefit Windsor and the surrounding area.
The Long Term (5 years - 30 years):
The governments of Canada and Ontario are currently involved with a Bi-National Planning process to improve the Canada/U.S. border in the Windsor-Detroit area, including improved connections to national, provincial and regional transportation systems. This study is a partnership between the governments of Canada, the United States, Ontario and Michigan. The Bi-National Partnership will provide the cross border 30-year development strategy, and is the means to consider new border crossings.
The Short Term (this year and next):
On July 11, 2002, Federal Transport Minister David Collenette and Ontario Minister of Transportation Norm Sterling announced a joint investment of $880,000 to ease traffic congestion on the Huron Church Road/Highway 3 corridor in Windsor and to improve the flow of cross-border traffic through the community.
The Medium Term (over the next 5 years):
The governments of Canada and Ontario recognized the need for a strategy to fill the gap between immediate operational improvements and the long term Bi-National planning strategy.
To meet this need, on September 25, 2002, the Prime Minister and the Premier committed to a joint 50/50 investment of $300 million over the next 5 years to upgrade the border infrastructure at the Windsor Gateway. The governments signed a Memorandum of Understanding (MOU) recognizing the importance of the Windsor Gateway transportation artery between Canada and the U.S., and that congestion on the existing corridor has caused major concern among industry and within the community.
1.5. MOU Terms of Reference
The MOU established a joint federal-provincial management committee to identify potential projects, consult with stakeholders and the public, and report back within 60 days with an Action Plan.
As set out in the MOU, the committee's work was to focus on existing border crossings and their approaches, without prejudicing the Bi-National Planning Process. New crossings were to be considered through the Bi-National Partnership but proponents could move to advance projects concurrently.
Other key provisions of the MOU included that decisions should be made as quickly as possible and that Canada and Ontario are to jointly decide on implementation. The Action Plan is to be coordinated with long term strategies and senior governments should work with the Americans to expedite the Bi-National Planning Process. In addition, the committee was to consider the scope for public and private sector partnerships.
2. Inputs
2.1. Consultation and Communications
Over the past 60 days, the committee met nine times in Windsor, Toronto and Ottawa to build its understanding of the issues and opportunities facing the Gateway. The committee started with a guided tour of the region conducted by City of Windsor staff to ensure a good working knowledge of the study area.
Throughout the process, the committee dedicated a significant amount of time to consulting with stakeholders. Bilateral meetings were held with owners and operators of all current border crossings—;car tunnel, rail tunnel, bridge, and truck ferry. Meetings were also held with proponents of potential future crossings—;bridge, truck tunnel, and aerial gondola.
The committee had discussions with municipalities including the City of Windsor, Essex County and representatives of the communities of Lakeshore, Tecumseh and La Salle. (Please see Appendix A for list of bilateral meetings.)
Ads were published in local French and English media inviting comments from members of the public. Over two dozen submissions were emailed, faxed or mailed to the attention of the Joint Management Committee.
On November 14, 2002, the city organized a public meeting on border crossing issues. Observers attended the meeting on behalf of the Joint Management Committee. Over 60 feedback forms were filled out by local residents and business owners and provided to the committee.
A town hall meeting was held on November 23, 2002 and observers attended on behalf of the Joint Management Committee.
All submissions from the public were considered by the Committee in its deliberations.
A number of complementary initiatives provided additional input to the Joint Management Committee. The Windsor/Essex County Business Transportation Task Force was established to identify issues facing the existing border crossings and recommend solutions. The Task Force submitted its final report to the federal Minister of Industry and Minister Responsible for Border Infrastructure, the Honourable Allan Rock, in September 2002. The Joint Management Committee met with the co-chair to discuss the work of the Task Force and its findings.
The Canadian Automotive Partnership Council is composed of representatives from government, industry, labour, and academia. The mandate of the Trade Infrastructure Subcommittee is to consider infrastructure issues across Canada. However, with the federal-provincial funding commitment of $300 million to Windsor, the Council decided to make Windsor its immediate focus and invited the Joint Management Committee to meet with them. The Council then submitted a detailed report to the committee.
On November 4, 2002, the committee hosted a workshop that included representatives of a variety of industries including: tourism, hospitality, auto sector, manufacturing, agri-business, as well as small business owners, trade associations and transportation user groups.
The workshop provided an opportunity for dialogue—;it brought together diverse community and stakeholder interests and allowed for interaction between the Joint Management Committee and some of those who may be affected by its decisions.
The workshop was divided into 3 parts: Issues/Challenges, Decision Making Criteria, and Initiative Identification. Participants were asked to respond to the items identified under each heading to evaluate their relevance, priority, and impact. They were also invited to comment on any items that may have been missed and which they felt needed to be included.
An overwhelming majority of participants expressed their satisfaction with the session. Many of the comments indicated that a good cross-section of the community was represented and that discussion was open and informative.
Please see Appendix B for the workshop summary.
2.2. Key Themes and Issues
Common themes emerged from the committee's consultation process. Primary was the need for a continuous, controlled access route from Highway 401 to the border. Some stakeholders expressed a desire to keep international passenger traffic on municipal roads (such as Huron Church Road) to support tourism and local commercial establishments while removing international truck traffic.
There was widespread recognition that the gateway needs to operate as a system, rather than a series of independent border crossings, roads and highways. Stakeholders expressed the view that different levels of government need to work cooperatively and that developing the relationships between key players is an essential factor. It was noted that senior levels of government need to exercise strong leadership and that the city should not have to bear full responsibility for strategic border infrastructure. Stakeholders emphasized support for multiple border crossings to build choice and flexibility into the system, while providing for a more competitive marketplace. There was also support for border process improvements, including adequate resources, particularly on the American side of the border, and recognition that technology can play a significant role in making traffic flow as efficiently as possible.
2.3. Positions of Key Parties
In meeting with stakeholders, many views were expressed on the problems and potential solutions for managing traffic at the Windsor Gateway. Depending on the group or individual presenting, the proposed strategies reflected different priorities. The following summarizes the positions expressed by key parties.
Industry
The main issue raised by industry representatives was the need for a direct and reliable link from Highway 401 to the border. This was identified as the fundamental principle that any recommendations should address. The "just-in-time" delivery model relies on the frequent and predictable movement of goods across the border. Therefore, in addition to improving the existing infrastructure, industry advocated for improvements to border processes delivered by federal inspection agencies, and supported the provision of choice in border crossings. Developments to the transportation infrastructure in the east end of the city were seen as less pressing needs.
Tourism/Retail Establishments
The tourist industry and business owners in the City of Windsor appealed for a solution that would remove international truck traffic from city streets while allowing local and international passenger traffic to remain.
Local Government
Local governments supported the objective of removing truck traffic from Highway 3/Huron Church Road. Their focus is on regional transportation and economic development objectives and they see improvements to EC Row Expressway and Lauzon Parkway as important steps in this direction. They believe that links between EC Row and the border should be dealt with through the Bi-National Planning Process.
Residents
The people living in Windsor and the surrounding area are well aware of the congestion issues within the City and at the border crossings. While they recognize the importance of pursuing solutions to the current problems, their main concerns are with the potential impacts of any remedy. In particular, they have called attention to noise and air pollution, property impacts and the disruption of established communities. Residents have emphasized the importance of public participation, and of the environmental approval process.
U.S. Agencies
The position of American agencies, such as the Federal Highways Administration (FHWA) and the Michigan Department of Transportation (MDOT), is neutral regarding investments on the Canadian side of the border, provided that they do not prejudice the Bi-National Planning Process.
Windsor/Essex Business Transportation Task Force
The Task Force echoed the calls of industry for a direct link from Highway 401 to the border. They advise that preliminary improvements should be to the Detroit-Windsor Car Tunnel and to linking the Ambassador Bridge to the highway. They encourage Canadian and American federal governments to work cooperatively to address staffing issues at the border. They promote the use of advanced border processes and support modifications to the bridge and tunnel plazas to accommodate queuing and new technologies.
The Task Force advocated for integrated systems to coordinate communications systems between the United States and Canada, to coordinate information technology and traveller information systems at all border crossings, and to explore interoperability of tolling between border crossings.
The Task Force also recommended expediting the Bi-National Planning process.
Canadian Automotive Partnership Council Trade Infrastructure Subcommittee (CAPC)
The Council asserted that there is no one solution to the Gateway problems; rather there is a need to create a "state-of-the-art" border crossing. Their idea of such a crossing includes the need for a seamless, uninterrupted connection from the 401 to the border and supports the Ambassador Bridge plan as the most immediate solution. They also recognize the need for alternative border crossings. The Council addresses the role of improving border processes, drawing attention to pre-processing facilities, streaming traffic (high vs low risk) and developing supportive infrastructure such as expanded plazas and dedicated lanes.
The Council emphasized that timely decision-making and initiation of projects is crucial to provide security and stability for industry. To that end, they support expediting the implementation of the Joint Management Committee's recommendations and accelerating the Bi-National Planning process.
The Council identified the need for a bi-national coordinating agency for the Windsor-Detroit Gateway.
Automotive Parts Manufacturers' Association (APMA)
The main objective highlighted by the APMA is maintaining a competitive environment to encourage continued investment in Windsor, Ontario and Canada. As such, they identify that the "primary premise" should be to ensure that systems are reliable for just-in-time delivery. Achieving this depends on both infrastructure and border processes. APMA argues that technological/processing advances only work if there is the capacity and infrastructure to support them (i.e. dedicated lanes to stream traffic). They recommend expanding customs plazas and implementing advanced processes i.e. pre-clearance, reverse inspections, and bio-metrics. They support the Ambassador Bridge proposal along the Essex Terminal Route as the most immediate improvement. They believe that the DRTP proposal should be supported as it provides an alternate route and additional capacity. They also encourage planning for new border crossings and accelerating the Bi-National Planning process.
2.4. Potential Projects
Figure 2 - Potential Projects
Click on map for enlargement (85 KB)
City of Windsor
The City of Windsor presented the Joint Management Committee with copies of resolutions passed by city council. The priorities identified were: upgrading E.C. Row Expressway, extending Lauzon Parkway to the 401 (green line on Figure 2), and improvements to the Walker Rd and Huron Church corridors. Council supports multi-modal solutions, wants to enhance community security and protect the integrity of existing neighbourhoods. They also state that automobile traffic should be kept on Windsor streets, while removing international truck traffic.
The proposed Lauzon Parkway Extension would be a new 6km freeway in Essex County extending from the easterly end of EC Row to a new interchange with Highway 401. This corridor passes through rural agricultural land and supports the city's goal of opening up this area for industrial development. The proposed widening of the EC Row Expressway would be from Lauzon Parkway to Huron Church Road.
The estimated cost of widening EC Row and extending Lauzon Parkway is $120M plus land acquisition costs (estimate based on information provided by proponent). There would be some property, and possibly wetland impacts.
Operational improvements along Highway 3/Huron Church Road, such as grade separations and pedestrian crossings, could reconnect communities bisected by Huron Church Road, manage traffic flow, and ease movement for those wishing to access local businesses or community facilities. Road/rail grade separation along Walker Road would reduce the queuing of vehicles created by passing trains.
Ambassador Bridge
The Canadian Transit Company/Detroit International Bridge Company has developed the "Ambassador Bridge Parkway Proposal" (blue line on Figure 2). The proposal calls for conversion of the existing Huron Church Road/Highway 3 roadway into an international freeway, and construction of one-direction service roads on either side. From Huron Church Road to Ojibway Parkway, new "secure" international service roads would be built on either side of EC Row Expressway. The secure roadway would then go along the Essex Terminal Railway and Hydro Corridor to the foot of the Ambassador Bridge. The CTC would also undertake expansion of customs plaza at EC Row and Huron Church Road.
Estimated cost is $376M, including $50M for plaza, plus land (estimate based on information provided by proponent). Private investment (CTC/DIBC) estimated at $76M.
The Ambassador Bridge plan provides a direct link to the border, and removes all international traffic from Huron Church Road (between EC Row and the bridge). It has significant community impacts and requires significant property acquisition.
Detroit River Tunnel Partnership
The Detroit River Tunnel Partnership (owned by Borealis Transportation Infrastructure Trust and Canadian Pacific Railway) has proposed a Windsor-Detroit "TradeWay" (yellow line on Figure 2). The plan involves converting the DRTP rail corridor to a dedicated, secure truck route from Highway 401 to the border, and ultimately to connect to the I-75 in Michigan. The existing twin tube rail tunnel would be converted into a two-lane, secure truckway and an adjacent rail tunnel would be built to accommodate double stack containers. A new customs plaza would be constructed in the former rail marshalling yard between EC Row and Tecumseh Road.
Estimated cost is $600M for the truck route and $300M for the new rail tunnel (includes $750M from DRTP). Cost estimates are based on information provided by the proponent. DRTP will be looking for financial assistance from U.S. agencies.
The DRTP proposal provides a dedicated link to the border for trucks. There would be significant community impacts. The plan also requires support from American agencies.
Windsor-Detroit Tunnel
The Windsor-Detroit Tunnel is owned by the City of Windsor and operated under agreement by the Detroit-Canada Tunnel Corporation (brown line on Figure 2). The tunnel operators would like to redevelop the plaza to improve efficiency. The operators hope to remove queuing traffic from city streets and accommodate it on an expanded plaza. Redevelopment would also allow dedicated lanes to be built to stream traffic. DCTC sought support for integrated advanced tolling systems, c oordination of traveller information, emergency notification and variable message signs.
Plaza redevelopment would increase capacity and improve efficiency for auto traffic and allow maximum benefit from NEXUS technology. The proposal recognized border c rossings as part of an integrated system. There would be some commercial property impacts.
Estimated investment by the proponent is $30M.
Mich-Can International Bridge Company
The Mich-Can International Bridge Company has put forward a proposal to build a new four-lane suspension bridge linking E.C. Row Expressway and I-75 in Michigan (pink line on Figure 2). The proposed bridge would be located roughly 5 kilometres south of the Ambassador Bridge. Mich-Can intends the project to be privately funded by a not-for-profit operating company issuing tax exempt revenue bonds. Eventually, the bridge would be turned over to public ownership.
The Mich-Can proposal supports the need for additional crossings to provide greater traveller choice and provide alternatives in case of incidents or emergencies. The proposed location of the Mich-Can bridge in lesser developed areas means that neighbourhood impacts are reduced.
Estimated cost of the project is $500M (estimate based on information provided by proponent). Mich-Can is seeking governments to contribute U.S. $100M. However, as outlined earlier, new crossings are to be considered within the Bi-National Planning process.
Mich-Can supports upgrading EC Row Expressway and developing the Lauzon Parkway Extension to the 401.
Commercial Vehicle Processing Centres
Various locations with access to Highway 401 have been identified as potential sites for new commercial vehicle staging and pre-processing facilities. These would be used to "hold and meter" U.S. bound trucks. Pre-processing facilities would enable commercial paperwork to be reviewed in advance to improve efficiency at the border. Incomplete information could be caught early and corrected, preventing unnecessary delays at the border. Completed paperwork could be submitted electronically or by fax to US customs officials and drivers would wait at the facility for clearance, thereby reducing queuing of transport trucks on city streets.
Detroit-Windsor Truck Ferry
The focus of the Detroit-Windsor Truck Ferry (orange circle on Figure 2) has been to transport oversize/overweight trucks or those carrying hazardous or dangerous goods across the border. The operator of the ferry expressed that efficiencies could be realized by improved use of information technology, improved directional signage and traveller information systems.
The Truck Ferry has suggested that capacity at the Windsor Gateway can be increased with an additional truck ferry barge and extended operating hours.
The ferry location is already staffed by customs and is in an industrial area. Expanding service to the degree discussed by the proponent would not require new infrastructure, or environmental assessment.
According to the proponent, the estimated cost for additional vessels (tug and barge) and IT systems is $2.5M.
Aerial Gondola
Skylink International is promoting an aerial gondola crossing the Detroit River. The "Freedom Gondola" would use cable cars to carry passengers from downtown Windsor to downtown Detroit (red line on Figure 2). Customs and inspections would need to be accommodated, and the project requires the support of American agencies.
The gondola could expedite border processes as there are no vehicles to inspect, and could reduce congestion at the crossings as patrons would be parking their vehicles before crossing.
As referenced with other proposals, new crossings are to be considered within the Bi-National Planning process.
Intelligent Transportation Systems
Intelligent Transportation Systems (ITS) can be used to manage traffic by responding to real-time information. An ITS plan can be developed to integrate traffic systems with border operations, stream traffic, and deploy traveller information services. This could include changeable message signs that would alert travellers to queue times and choke points.
ITS would increase efficiency, safety and operation of the existing infrastructure. It can be implemented relatively quickly with minimal impacts on the community.
3. Measuring Success
3.1. A Vision for the Gateway
To frame its recommendations, the Joint Management Committee developed a Vision Statement for the Windsor Gateway border crossing to be a model international gateway for the 21st Century, facilitating the movement of people and goods based on collaboration and taking account of community interests.
The Gateway should embody the following attributes:
- fast, reducing congestion and minimizing the mixing of international and local traffic;
- efficient, allowing low risk commercial and passenger traffic to move quickly through the gateway, while improving the ability to target resources at higher risk traffic;
- continuous, linking highway to border;
- integrated, operating as a single system across all border crossings in the region, with seamless connections to the various approaches, and ultimately with the US;
- secure, protecting the interests of the two nations, of users and of the infrastructure itself;
- multi-modal, allowing highway, road, rail, ferry and other modes of transportation to play their appropriate role in the movement of people and goods; and
- high tech, using state-of-the-art technology to manage the border, the approaches and to provide information to users.
3.2. Moving Towards the Vision
The Joint Management Committee established the following principles to guide its assessment of potential projects and to develop its proposed action plan:
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Increase efficiency/reduce congestion
The volume and frequency at which people and goods move across this border makes this an essential goal. -
Minimize impact on local communities
Residents have raised concerns about the impact of any proposal on near-by communities. Issues to consider are noise and air pollution, and property impacts. -
Deliverable in short/medium term within the $300M envelope
A specific target was set to ensure that proposed solutions could be implemented within a time frame that would reflect the urgency of the situation, while respecting the ongoing development of longer term strategies. -
Complement/support longer term strategies
Industry, communities and municipalities have expressed the need to mitigate immediate concerns while recognizing that future growth and development will create new needs for the Windsor area. Solutions considered by the Joint Management Committee should not pre-empt or prejudice the important work being done by the Bi-National Planning process. -
Enhance security
The tragic events of September 11th, 2001 have underscored the importance of security considerations at border crossings. Governments recognize that the protection of people, goods and infrastructure is critical to a safe, efficient Gateway. Technology and advanced border processes offer new opportunities to support modern security measures. -
Provide choice and flexibility
Currently crossing choice is largely pre-determined—;particularly for commercial traffic which is predominantly accommodated through a single crossing—;the Ambassador Bridge. It is important to increase the options available to the public, especially if incidents or emergencies impede traffic movement at any particular crossing. -
Ensure equitable consideration of proponents
All proponents of border infrastructure should be treated equitably, without unduly advantaging or disadvantaging any one proponent. -
Encourage partnerships
There are many important players and success is dependent on their cooperation. This includes different levels and agencies of government—;municipal, provincial and federal—;and the private sector.
4. Proposed Action Plan
4.1. Outcomes
To address the critical needs at the Windsor Gateway, the recommendations point to some immediate outcomes including:
- The creation of truck staging and pre-processing facilities.
- The deployment of technology to increase the efficiency of the Windsor area transportation system.
- The construction of grade separated intersections and pedestrian crossings at key bottlenecks along Highway 3/Huron Church Road.
Should the governments accept the recommendations, substantial changes should be noticeable to residents and users of the Windsor transportation system within 5 years of implementation, including:
- The elimination of all international truck traffic from Huron Church Road north of the EC Row Expressway.
- A significant reduction in the volume of international truck traffic on Huron Church Road/Highway 3 south of the EC Row Expressway
- Improvements to Windsor's transportation network that would provide additional choice and flexibility to all users and support local economic development.
To achieve these goals, the recommended Action Plan has four components:
- Improved Border Processing
- Effective Use of Technology and Traffic Management
- Investments in Infrastructure Improvements
- Commitment to Ongoing Coordination
While each component will be addressed individually, the Joint Management Committee recognizes that only an integrated approach can remedy the issues affecting the Gateway.
4.2. Improved Border Processing
Throughout the Committee's consultations, reference was made to the fact that congestion and efficiency at the border and its approaches are greatly impacted by customs and immigration processing. It is essential to recognize that sufficient resources are required on both sides of the border to address this issue.
Stakeholders agree that infrastructure improvements alone cannot solve congestion issues if border processes are not robust. To that end, federal inspections agencies on both sides of the border are working together to develop and implement fundamental changes to the way the border operates. Joint Canadian-U.S. initiatives already underway include NEXUS (for frequent travellers), and FAST (for commercial uses).
Although border processes fall outside of the Joint Management Committee's mandate, the Committee offers four recommendations for consideration:
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Canada and the United States should continue the development and deployment of new border systems and processes to expedite the processing of low risk traffic and target resources to higher risk traffic.
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Southern Ontario should be a high priority for the early deployment of new generation processes and technologies.
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Federal agencies on both sides of the border should strive to ensure resources are available to address traffic demand. It would be desirable to establish measurable performance standards for processing cross-border traffic.
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The establishment of staging and pre-processing facilities for commercial traffic should be pursued both inside the city of Windsor and on the approaches to the city.
The main benefit of the above recommendations is that by making improvements to border processes, existing capacity is effectively maximized. At the same time, congestion along Highway 3/Huron Church Road will be reduced in the short term.
4.3. Effective Use of Technology and Traffic Management
Various technical assessments have shown that the infrastructure at the Windsor Gateway is not at full physical capacity. Therefore, better use of technology can have a measurable impact—;reducing congestion, improving traffic safety, and optimizing traffic flows.
Stakeholders stressed the importance of having systems that would make the border more user-friendly. These could include enhanced incident detection and response procedures, transmitting key information about traffic conditions to travellers, and tolling interoperability, all of which would add flexibility for those making choices about crossing the border.
To increase the level of customer service and improve the performance of existing infrastructure, the Committee recommends developing an Intelligent Transportation Systems (ITS) strategy for the Windsor Gateway based on collaboration with:
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customs and immigration agencies to integrate traffic management systems with border processing systems;
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bridge, tunnel and ferry operators, customs and immigration agencies, and road authorities to stream traffic efficiently through border crossings by establishing traveller information services, including changeable message signs at key decision points, travel advisory radio and web-based services; and
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road authorities and emergency service providers to implement traffic management systems on gateway approaches, including adaptive traffic signals, incident detection and response.
The benefit of these applications is that they could be implemented in the short term, improve the performance of existing infrastructure, and have not yet been fully exploited.
4.4. Investments In Infrastructure Improvements
Figure 3 - Windsor Gateway Action Plan
Click on map for enlargement (95 KB)
The most commonly expressed view heard by the Committee was the need for a continuous, controlled access truck route from Highway 401 to the border. This would satisfy the needs of commercial traffic while improving the flow of passenger traffic, including residents, tourists and commuters.
The committee recommends implementing a four-part infrastructure strategy, including:
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Investments in core infrastructure for the Windsor Gateway that will serve both current and potential future crossings while taking account of local community interests. This would involve investments to:
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Build a public, truck-only parkway between Highway 401 and the EC Row Expressway using the CASO Rail corridor, including the necessary interchanges/grade separations, while diverting rail traffic to the CP main line (red line on Figure 3);
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Expand by one lane in each direction EC Row Expressway between the CASO Rail corridor and Ojibway Parkway (red line on Figure 3); and
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Make operational improvements to Highway 3/Huron Church Road, on an urgent basis, by building grade-separated intersections and pedestrian crossings at various locations to be determined (red dashed area on Figure 3).
This core infrastructure would improve access to the existing crossings at the Ambassador Bridge and the Detroit-Windsor Truck Ferry, as well as support the DRTP tunnel proposal and the Mich-Can bridge location.
These projects would also address some of the concerns expressed by the local community. Pedestrian crossings and grade-separated intersections would serve to improve access and ease of movement, thereby enhancing quality of life for residents in the community of Windsor/Essex.
Creating additional routes for international traffic would also have a positive affect for local tourist and business activities along Highway 3/Huron Church Road.
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Improved Access to Border Crossings:
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Work with CTC/ Ambassador Bridge, in collaboration with the City of Windsor and the local community, to pursue the development of a dedicated truck route from Ojibway Parkway at EC Row Expressway to the Ambassador Bridge (short dashed blue line on Figure 3).
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The route could go west to the Essex Terminal Railway line and then north along rail/hydro corridor to connect with the Ambassador Bridge.
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The governments of Canada and Ontario would provide technical assistance and support to CTC in their pursuit of the proposed improvements.
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CTC would be encouraged to expand its Industrial Drive commercial vehicle customs plaza to accommodate primary and, possibly, secondary inspection.
Development of this route would address some of the key concerns heard by the committee. It would provide a secure, efficient truck route to the border crossing and would relieve stress on Highway 3/Huron Church Road while continuing passenger traffic through the City of Windsor. This would accommodate both the needs of industries that rely on cross-border trade, as well as the local tourist and business operations within the City of Windsor and surrounding areas.
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Work with DRTP, in collaboration with the City of Windsor, U.S. authorities and the local community, to pursue the development of a dedicated truck route between the EC Row Expressway and the US (long dashed blue line on Figure 3), including:
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Conversion of the existing rail tubes to accommodate truck traffic.
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The governments of Canada and Ontario would provide technical assistance and support to the DRTP in their pursuit of the proposed improvements.
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DRTP to construct a new commercial vehicle customs plaza and a secure truck route between plaza and tunnel.
Development of this route would address some of the key issues identified in the consultation process. It would provide increased choice and flexibility in the Gateway network by expanding the alternatives available to commercial vehicles crossing the border. It would also meet the need for secure and efficient movement of goods across the border.
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Improved linkages between local system and Gateway Infrastructure:
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Work in partnership with the City of Windsor to identify opportunities and address priorities that support economic development as well as local and Gateway transportation improvements (green markings on Figure 3), such as:
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Construction of Lauzon Parkway Extension from EC Row Expressway to Highway 401; and
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Road/rail grade separation at Walker Road and CP Rail main corridor.
Construction of the Lauzon Parkway extension could provide the impetus for new economic development in areas identified by the City for future growth. New infrastructure in this location would also improve access for residents and businesses in east Windsor as well as for neighbouring municipalities. Grade separating the intersection of the CP Rail main corridor and Walker Road would improve traffic flow by eliminating the traffic backlogs caused when vehicles must stop and wait for passing trains.
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Maximize the efficiency of the existing Windsor-Detroit Tunnel and ensure it remains a core component of the Gateway infrastructure.
- Encourage efforts, including long-term lease arrangements between the City of Windsor and its operator, to facilitate the necessary investment for the redevelopment of the plaza to meet the growing needs of the Windsor-Detroit community
Improvements at the Tunnel would support the vision of an integrated system of crossings to ensure an efficient flow of commuter and passenger vehicles across the border. Removing queuing vehicles from city streets and redeveloping the plaza would have positive impacts on quality of life and economic opportunities in Windsor/Essex County. Upgrading the infrastructure and creating investment opportunities would serve to promote the long-term viability of the crossing. Renegotiating the lease agreement would be beneficial as it would provide similar operating arrangements for both the Canadian and American sides of the tunnel.
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Support for multi-modal transportation and increased flexibility and choice by:
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Encouraging the continuation of efforts by the Detroit-Windsor Truck Ferry to expand its role in the Gateway;
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Encouraging proponents of new border crossings, such as Mich-Can International Bridge Company, and Skylink International to advance their projects through the Bi-National Planning Process; and
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Encouraging improved freight and passenger rail links into Windsor.
The recommendation supports the development of all alternative crossings to promote the vision of an integrated system that ensures the efficient flow of commercial and passenger vehicles across the border. If the Windsor Gateway is to maintain its integral role, it will need to provide increased choice and flexibility for all transportation users.
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4.5. Commitment to Ongoing Coordination
The Windsor Gateway has suffered from a lack of coordination, with many road, bridge and tunnel operators, as well as customs and immigration agencies, all pursuing their own agendas. The need for a systems approach will only increase in the future, particularly to accommodate more effective traffic management practices and the deployment of technology.
To rectify this situation, the Committee recommends the creation of a coordinating mechanism for Gateway activities to:
- Set priorities, developing integrated strategies and pursuing projects;
- Work with private operators and public agencies; and
- Coordinate interoperability, communications systems, traffic management and information centres.
Establishing an over-arching coordinating mechanism would ensure that the Windsor Gateway functions as a system with many integrated, complementary parts.
5. Moving Forward
5.1. Next Steps
At the conclusion of its journey to explore the issues at the Windsor Gateway, the Committee recommends that the federal and provincial governments:
- Support improved border processes with the implementation of FAST and NEXUS, encouraging the allocation of resources by inspection agencies; encourage the development of performance measures by inspection agencies and pursue proposals for staging and pre-processing facilities;
- Appoint a committee of federal, provincial and municipal transportation representatives to begin discussions with other partners on the development of an ITS strategy for the Windsor Gateway and identify specific projects for immediate action;
- Appoint an individual to work with federal, provincial and local governments, proponents, stakeholders and the local community to oversee the implementation of the Action Plan recommendations, including the negotiation/development of detailed proposals and the development of an appropriate ongoing coordinating mechanism;
- Establish dedicated project teams, with the necessary resources, in proponent ministries/agencies and regulatory agencies to aggressively pursue recommendations;
- Commit to harmonized environmental assessment processes;
- Initiate community and public consultation on a priority basis;
- Work to expedite approval processes and land acquisition; and
- Encourage all parties to accelerate the Bi-National Planning Process.
5.2. Critical Path
| Year | 1 | 2 | 3 | 4 | 5 |
|---|---|---|---|---|---|
| Improved Border Processing | Develop/Deploy Systems and Processes
Deploy Resources Develop Performance Measures Encourage Pre-Processing Centre(s) |
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| Effective Use of Technology and Traffic Management | Develop ITS Strategy | Integrate Border and Traffic Management Systems
Stream Traffic Across Border Implement Traffic Management Implement Traveller Information |
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| Investments in Infrastructure Improvements | CP Corridor: Negotiate Acquisition and Start EA
ETR Corridor: Negotiate with CTC DRTP Corridor: Negotiate with DRTP City Projects: Negotiate with City of Windsor |
CP Corridor: Continue EA/Begin Design
ETR Corridor: CTC Pursues Approvals/Design DRTP Corridor: DRTP Pursues Approvals/Design City Projects: EAs Continue |
All Projects Move Towards Construction (some projects move into construction in year 2, while others follow in years 3, 4, 5) | ||
| Commitment to Ongoing Coordination | Promote the creation of a coordinating mechanism for Gateway activities | Ongoing Coordination | |||
Appendix A: Bilateral Stakeholder Meetings
October 10, 2002
Mich-Can International Bridge Company
Ambassador Bridge
Detroit-River Tunnel Partnership
October 24, 2002
Essex County and municipalities of Lakeshore, Tecumseh and LaSalle
Detroit-Canada Tunnel Corporation
City of Windsor
Business Transportation Task Force
November 1, 2002
Canadian Automotive Partnership Council Sub-Committee on Trade Infrastructure
November 4, 2002
Detroit-Windsor Truck Ferry
Skylink International
Appendix B: Workshop Summary
The workshop was divided into 3 parts: Issues/Challenges, Decision Making Criteria, and Initiative Identification. Participants were asked to respond to the items identified under each heading to evaluate their relevance, priority, and impact. They were also invited to comment on any items that may have been missed and which they felt needed to be included.
Issues/Challenges
In the time leading up to the workshop, the Joint Management Committee met with stakeholders and received input from the community. The concerns voiced and lessons learned during that time formed the basis of the material for the session.
The facilitator presented the following issues/challenges:
- Traffic lights on Huron Church Road
- Truck traffic on Huron Church Road
- Rail lines intersect Walker Road
- Border processes
- Lack of coordination/communication between road authorities and border crossings
- International traffic queuing on local streets
- Advance notice of wait times at border not provided to travellers
- Vehicles detour through local streets to avoid Hwy 3/Huron Church Road
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Participants seemed to agree that the Windsor Gateway was not functioning well as a system
- Residential neighbourhoods were contending with many, large trucks; international bound trucks were snarled in local traffic
- Technology and infrastructure are not distinct solutions, they are complementary and must be improved simultaneously
- Coordination and cooperation with the US is imperative—;customs and border processes have a huge impact on congestion
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Some participants raised the process for implementing recommendations as an issue/challenge. Specifically, while everyone agreed on the importance of environmental assessments, there was some concern about the amount of time approval can take. Participants were eager for tangible solutions within the short to medium term timeframe.
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While acknowledging the MOU's focus on existing crossings, some participants noted that new capacity is needed for long term success.
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It was suggested that there was strategic importance in creating a high profile for any developments in the Windsor Gateway. Focusing attention on this area may lead to economic benefits as it sends a strong signal to American business, government and tourist markets.
Decision Making Criteria
For the committee to make recommendations to the governments, a set of principles was developed to evaluate potential projects.
The facilitator presented the following decision making criteria:
- Increase efficiency/reduce congestion
- Impact on local communities
- Deliverable in the short and medium term (1 - 5 yrs)
- Attract partners
- Complement & support longer term strategies
- Additional criteria that were mentioned by participants were:
- Connection to I-75 in US
- Implication for Environmental Assessment process
- Impact on tourism and retail markets
- Impact on movement of goods across border
- No increased burden on municipal taxpayers
- Participants were asked to devise indicators of improvement. Suggestions included:
- Growth in number of tourists, tourism related business
- Reduction in truck idling time and faster delivery times
- no trucks on city streets
- measure "throughput"—;how long it takes to get across the border
Initiative Identification
As the committee talked to people living and working in the community, several themes emerged reflecting a range of options for meeting the challenges in the short to medium term.
The facilitator presented some of the ideas that had been heard, in no particular order.
- Improvements to Huron Church Road/Highway 3 Corridor
- Conversion of CP Rail Corridor to include secure truck route
- Mich-Can Bridge
- Expansion of EC Row Expressway
- Lauzon Parkway Extension linking Hwy 401 to EC Row
- Windsor-Detroit Car Tunnel Plaza Redevelopment
- Upgrades to Walker Road Corridor
- Commercial Vehicle Processing Centres/Marshalling Yards
- Intelligent Transportation Systems
- Customs and Immigration Processes
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There was consensus among participants that another category had to be added. "Staffing" of the American customs booths was unanimously agreed to have an immediate and profound impact on the efficiency of the border crossings.
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There was also consensus that improving border processes—;commercial vehicle processing, appropriate staffing at customs and immigration and technology solutions were paramount
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The point was raised that technology and processing advances reach potential only if there are complementary infrastructure improvements i.e. facilities to separate low and high risk traffic
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Many participants agreed that there was a need to better coordinate the various border crossings—;especially for tolling and traveller information. Point was also made that more choices need to be available in case of incidents or emergencies.
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Opinion was expressed that city should not have ownership of strategic corridor to ensure consideration of regional and national needs
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Of the infrastructure options, the majority of participants supported "A" and "B"—;improvements to Huron Church Road/Highway 3 Corridor and Conversion of DRTP Rail Corridor to include secure truck route—;with the following variety of caveats:
- remove international truck traffic but leave passenger vehicles on Huron Church/Hwy 3
- do not ban trucks on Huron Church/Highway 3 if capacity cannot be met on DRTP corridor
- recognize that while Huron Church/Highway 3 is not in ideal position to be an international trade corridor, it is currently the main route to the primary border crossing and should therefore be a priority
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Mich-Can Bridge:
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Generally recognized as good for increased capacity and to provide added choice, but seen as outside scope of Joint Management Committee
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Lauzon Parkway Extension linking Hwy 401 to EC Row and Expansion of EC Row Expressway
- The opinion was voiced that the city has done extensive planning and therefore their interest need to be protected
- Seen as important to city for economic development of east Windsor and to improve access to other communities
- Not seen as priority by industry (no direct link to border)
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Windsor-Detroit Car Tunnel Plaza Redevelopment
- Important part of system—;balances passenger vehicles through tunnel with commercial vehicles at bridge
- Expansion of plaza would prevent queuing on city streets
- Real benefit would come from building designated lanes for pre-cleared users
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Upgrades to Walker Road Corridor
- Seen as important for city's vision of future growth but not as priority for industry
Workshop Participants
Rob Evans, Holiday Inn Select/Huron Church Business Association
Dominic Amicone, Huron Church Business Association
Kevin Clugston, Ontario Agri-Business Association
Grace Zec, Ontario Restaurant Hotel & Motel Association
John Bailie, Kodak Canada Inc (on behalf of Canadian Manufacturers and Exporters)
Dick Bederaux-Cayne, Casey's Bar & Grill
Faye Lyons, CAA - Central Ontario
David Adams, Canadian Vehicle Manufacturers' Association
Doug Switzer, Ontario Trucking Association
David Bradley, Ontario Trucking Association
Elizabeth Hamel, Convention & Visitors Bureau of Windsor, Essex County & Pelee Island
Vincent Guglielmo, Automotive Parts Manufacturer's Association
Gregg M. Ward, Detroit-Windsor Truck Ferry, Inc.
Paul Innes, NAFTA Superhighway Coalition
Steve Ondejko, President, Windsor Transportation Club & ONfreight Logistics
Larry Banon, Windsor Airport Advisor Committee
Daphne Micallef Reid, Hiram Walker & Sons
Debbie Dent, D Dent & Associates
Eda Cross-Miles, DaimlerChrysler
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