Report to: Development Services Committee                                  Report Date: June 16, 2009

 

 

SUBJECT:                          Milne Dam Conservation Area – Multi-use Pathway

                                           

 

PREPARED BY:               Alan Brown, Director of Engineering

                                            Lorenzo Mele, TDM Coordinator

                                           

 

 

RECOMMENDATION:

 

1)                  That the staff report entitled “Milne Dam Conservation Area – Multi-use Pathway, dated June 16, 2009, be received;

 

2)                  And that the multi-use pathway alignment from McCowan Road to Milne Lane as outlined in this report be endorsed;

 

3)                  And that staff report back as to the multi-use pathway alignment from Milne Lane to Main Street Markham;

 

4)                  And that staff be authorized to finalize the design, obtain TRCA approval for the McCowan Road to Milne Lane alignment and report back to Committee in Fall of 2009 with an update;

 

5)                  And that the purchase orders for the design consultants (Chisholm, Fleming and Wardrop) be increased, in accordance with the Expenditure Control Policy, for additional work related to the design of the multi-use pathway.

 

6)                  And that the increased purchase orders for design consultants be funded from Engineering Capital Account 083-5350-8114-005;

 

7)                  And that staff be authorized and directed to do all things necessary to give effect to this resolution.

 

1. Purpose                     2. Background                      3. Discussion                        4. Financial        

 

5. Others (HR, Strategic, Affected Units)                                   6. Attachment(s)

PURPOSE:

This report provides Development Services Committee with the pathway alignment recommendations from the “Milne Working Group” and staff recommendations related to such.  The recommended next steps for developing a multi-use pathway system in the Mine Dam Conservation Area are also presented.

 

BACKGROUND:

Project Need

The need for a multi-use pathway in the Milne Dam Conservation Area was confirmed by numerous Town studies and surveys including the Cycling, Pathways and Trails Master Plans.  The Milne multi-use pathway is a vital link to creating an active transportation network along the Rouge River from 16th Avenue to the Rouge Park that will connect Unionville, Markham and Milliken Communities with an off road cycling and pedestrian pathway through an “Open Space Greenway”.

 

Province of Ontario – Municipal Infrastructure Investment Initiative (MIII)

As part of the 2007 Ontario Economic Outlook and Fiscal Review, the Town of Markham was provided a one-time grant of $4,500,000 through the Municipal Infrastructure Investment Initiative to be used for the development of a Cycling and Pathway System.  This funding was allocated as follows:

 

o       Major Mackenzie Dr. (Woodbine Ave. to DC Pkwy.)                                   $550,000

o       Donald Cousens Parkway (Major Mack Dr. to 14th Ave.)                          $1,700,000

o       Milne Dam Area (McCowan Road to Main Street Markham)         $2,250,000

 

Work on the Major Mackenzie Dr. and Donald Cousens Parkway portions commenced last year and will be finished late this year.

 

Pathway Planning and Development

To advance the development of the multi-use pathway in the Milne Dam Conservation Area (MDCA) the Town retained the consulting firm Chisholm Fleming and Associates (CFA) to:

o       Confirm the multi-use pathway alignment;

o       Develop a detailed design of the pathway for construction purposes;

o       Obtain the necessary approvals from regulatory agencies on behalf of the Town

o       Administer the construction of the pathway.

 

As a first step to investigating an appropriate alignment for the pathway, on May 14, 2008 the Town invited the Toronto Region Conservation Authority (TRCA) along with the Ward Councillor, members of the Town Engineering, Planning and Parks Operations Departments to carryout a site visit of the MDCA.  Following this site visit and orientation meeting CFA consultants and staff began their work in assessing and surveying the pathway alignment including an inventory of trees and associated habitat that might be impacted by the pathway construction.

 

A preliminary pathway alignment including four (4) options (Attachment ‘A’) for crossing the Milne Creek area emerged based on staff and consultant survey work and stakeholder/resident consultations.  Of the four (4) alternatives developed the option to route that pathway away from the heavily treed and environmentally sensitive area around Milne Creek emerged as a preferred alignment.  This option would require the crossing of a water course (Milne Creek outlet into reservoir) using a bridge structure (Option 4).  Further review of the Milne Creek crossing relocated the bridge structure as per Attachment ‘B’ to avoid the sensitive Milne Creek area.

 

Once engineering staff determined that the preferred pathway alignment would require water course crossings the Town retained the consulting firm Wardrop Engineering to;

 

  • Carryout the water course crossing studies to determine the feasibility of constructing bridges in two separate locations (Milne Creek and near the dam spillway),
  • Provide the Town with a recommendation on the type of bridge structures that would be appropriate based on the site context and the available budget and,
  • To meet the requirements of the Class B Environmental Assessment and the associated review and approval from the TRCA.

 

The preferred pathway alignment (Attachment “C”) was adopted by the Cycling and Pedestrian Advisory Committee (CPAC) on February 12, 2009, and by the Town’s Development Services Committee on February 24, 2009 with a recommendation to establish a working group to review the proposed final design of the preferred alignment and report back to the Development Services Committee.

 

On March 10, 2009 Town Council considered the resolution from the February 24, 2009 DSC meeting and requested that staff report back to the March 24, 2009 Development Services Committee meeting with a draft Terms of Reference (TOR) including the composition of a working group to review options that would satisfy the initial plan to construct a multi-use (pedestrian and cycling) pathway through an ‘Open Space Greenway’ – Milne Dam Conservation Area.

 

The Development Services Committee at their March 24, 2009 meeting received a staff report which outlined the project status and the Terms of Reference (Attachment “D”) for a ‘Working Group’ to review the multi-use pathway alignment options and recommend a multi-use pathway alignment to Council by June 16, 2009.

 

Public and Stakeholder Consultations

As the Milne project moved towards implementation the Town worked closely with TRCA staff on all aspects of this project. Town staff also contacted the Milne Dam Conservation Association and invited members of a community group to attend a site visit of the area on Friday June 6, 2008. Subsequent to this site visit Ward 4 Councilor hosted a community information meeting on June 26, 2008 to introduce the project proposal to local residents. On October 29, 2008 the Town hosted another community consultation session with local residents to request their comment and feedback on the preliminary pathway alignment including the four (4) alignment options for crossing the Milne Creek area. Based on these consultations and subsequent discussions with TRCA and CFA staff the Town determined that it would be necessary to cross a water course in the Milne Creek area and near the dam spillway. On February 19, 2009 the Town held a Public meeting to present the preferred pathway alignment (Attachment “C”) to interested residents and stakeholders.

 

During the public and community consultations, and in separate communiqués to staff and Council, residents have provided the Town with their concerns and comments, which staff subsequently reviewed and were to be addressed through a mitigation plan. It should be noted that although the concerns expressed by the residents can be mitigated through the design, construction and subsequent management of the pathway, the overwhelming majority of residents that live in the immediate area of the Milne Dam Conservation Area were in support of a ‘do nothing’ approach.

 

OPTIONS/ DISCUSSION:

 

Working Group Process

The working group was established to review pathway alignment options for the Milne Dam Conservation Area multi-use pathway using the route selection principles established for the Pathways and Trails Master Plan, and to refine the details of the design with respect to, but not limited to, identified issues of concern:

  • Setbacks from water courses and private property
  • Pathway width to minimize impact to trees and habitat
  • Determine mitigation or environmental issues that may impact the alignment of the pathway

 

The work group was guided by the route evaluation criteria (Attachment “E”) and the engineering consulting firm of MMM Group was retained to support the working group through the process of considering and evaluating the options related to the multi-use pathway alignment.

 

The work group held four (4) meetings and one (1) site visit:

 

  • April 6 – Introductory meeting to review and approve the draft terms of reference, become familiar the Markham Cycling, Pathways and Trails Master plan network and the evaluation criteria to be used to evaluate the pathway alignment options.
  • April 22 – Site visit to review the alignment options and consider and discuss mitigation measures to satisfy the pathway alignment principles and legitimate resident concerns.
  • May 6 – Review meeting to discuss the pathway alignment options that were considered and to choose a preferred pathway alignment.
  • May 19 – Continue evaluating the preferred pathway alignment to be present to Council.
  • May 27 – Meeting to finalize the recommended multi-use pathway alignment and confirm next steps.

 

 

Working Group Multi-use Pathway Alignment Recommendations

The following section of this report outlines the recommendations of the working group on the various sections of the pathway and the Engineering Department position regarding such.

 

The working group recommendations have been assembled into three (3) broad categories as follows and Attachment F identifies the pathway sections;

 

  • Recommended Alignment
  • Review ‘In The Park’ Options
  • Additional Recommendations

 

 

Recommended Alignment

The recommended alignment along with the associated pathway width, surface treatment considerations and required structures (boardwalks) is presented in 8 sections (A to H).

 

Section A

 

Work Group Recommendation: The existing pathway from McCowan Road to the works yard parking area is to remain at its current width (2.5 to 3.0 M) and be top dressed as required with limestone screenings.

 

Staff Position: Endorsement

 

Section B

 

Work Group Recommendation: From the works yard parking area to the existing pathway to the east of this section, a new limestone screened pathway constructed to a width of 1.5 meters.

 

Staff Position:  Prepared to try the 1.5M width but anticipate conflicts between pedestrians and cyclists will require widening of the pathway in the future.

 

Section C

 

Work Group Recommendation: The existing limestone screened pathway to be maintained at its current (+/- 3.0M) width and that the pathway be graded and top dressed with limestone screenings as required.

 

Staff Position: Endorsement

 

Section D

 

Work Group Recommendation: From the existing pedestrian and cycling bridge located at the east end of the parking area through the gate at the Milne Creek location a new 3.0M wide limestone screened pathway be constructed.

 

Staff Position: Endorsement

 

 

Section E

 

Work Group Recommendation: That the pathway in the area between the opening in the fence, north to Drakefield Road, be a combination of crushed limestone and elevated boardwalk in a width appropriate to the surface type;

 

And that the boardwalk include railings;

 

And that the opening in the fence be widened appropriately to the width of the path;

 

And that the degraded area of the existing pathway between the opening in the fence, north to Drakefield Road, be re-naturalized.

 

And that the location of the existing bridge, between the opening in the fence, north to Drakefield Road, be re-positioned to the east of its existing position.

 

Staff Position: Endorsement

 

Section F

 

Work Group Recommendation: From Milne Creek at Drakefield Road to the Willowgate Drive entrance into the conservation area use these two roadways as the pedestrian and cycling route and the Working Group does not support the installation of sidewalks on Drakefield Road and Willowgate Drive.

 

Staff Position: This route can be signed as an on-road bicycle route. Staff however recommend a concrete sidewalk adjacent to the curb at a width of 1.5 meters be constructed in this section to provide a safe walking environment for future users.

 

 

Section G

 

Work Group Recommendation: A 3 metre wide pathway of crushed limestone to be constructed in the area between Willowgate Drive and the foot of Milne Lane, as consistent with the rest of the pathway, with the exception of areas that would have to be narrowed to accommodate natural features.

 

Staff Position: Endorsement

 

 

Section H

 

Work Group Recommendation: That in the absence of the Working Group finalizing an alignment for this section of the Multi-use Pathway, an interim cycling route be approved from Milne Park continuing north along Milne Lane to the on-road signed bicycle route to Highway 48.

 

Staff Position: Endorsement of on-road cycling route. This section is to be studied in 2009/2010 as part of a separate design and approval project from Main St. Markham to Box Grove.

 

 

 

 

 

Review ‘In the Park’ Options – Sections E and F

As the ‘Working Groups’ position on sections E and F was only narrowly carried and residents of Drakefield and Willowgate may be in opposition of the proposed route, staff and the TRCA were requested to  prepare a fall back route through the park.

 

Work Group Recommendation:  That Town staff and consultants work with the Toronto and Region Conservation Authority (TRCA) to explore the options for maintaining the multi-use pathway alignment within the conservation area. And that the Working Group request the Toronto and Region Conservation Authority (TRCA) to investigate the option of going to the east side of Milne Creek instead of exiting onto Drakefield Road with respect to pedestrian use;

 

And that the TRCA also be requested to explore other alternatives and report back on potential impacts and options for consideration.

 

Staff Position: Staff will review with the TRCA pathway alignment options within the park, which include Options 3 and 4 on Attachment A, and the staff preferred crossing of the Milne Dam noted in Attachment B.

 

 

Additional Recommendations

The working group also reviewed a number of options to create a more extensive pedestrian and cycling network in the vicinity of Milne Dam Conservation Area and the following recommendations have been made;

 

  • The Region of York be requested to construct a separate cycling and pedestrian facility in the boulevard along the south side of Highway 7 between McCowan Road and Markham Main Street – Attachment F - Purple line.
  • The Town expand the signed on road cycling route using the residential road network between Milne Park and Highway 7 – Attachment F – Yellow line.
  • The Town establish a sign and way finding plan for this area.

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

Working Group Continued Involvement

The working group as per the approved terms of reference will also assist staff with the finalization of a mitigation plan related to the multi-use pathway that addresses but is not limited to the following concerns:

  • screening and privacy for residents
  • environmental issues, maintaining a healthy wetland
  • preserving wildlife
  • litter control
  • security issues
  • prevent cars and other vehicles from traveling on the pathway (barriers)
  • parking control at the bottom of the streets adjacent to the park
  • controlling dogs running free in environmentally sensitive areas
  • signage

 

Consulting Services

Currently there are two active consulting contracts (Chisholm Fleming and Association and Wardrop) associated with this project, and based on the recommendations of the working group, additional consulting services outside their original scope of work are anticipated and are to be charged to Engineering Capital Account 83-5350-8114-005.  The Director of Engineering will negotiate additional fees to update their scopes of work to finalize the design and prepare a mitigation plan.

 

Next Steps

Following the endorsement and direction from Council concerning this project, staff and our consultants will work to finalize this project as follows:

 

  • Summer of 2009 design Sections A, B, C, D and G
  • Review with consultants and TRCA options for maintaining the pathway in the park (Section E and F)
  • Update Development Services Committee in Fall 2009
  • Public Meeting – Fall 2009
  • Construction – Spring 2010

 

 

FINANCIAL CONSIDERATIONS AND TEMPLATE:

Funding in the amount of $2.25 million for this project has been secured from the Province of Ontario – Municipal Infrastructure Investment Initiative as part of the total grant of $4,500,000 received in 2008.  The original grant application for the pathways estimated a December 31, 2009 completion date, however staff now anticipate construction of the Milne Dam Conservation Area multi-use pathway will not start until late spring 2010.  Recognizing that the project had been delayed, staff indicated in the March 31, 2009 mandatory “Report on Use of Funds” to Infrastructure Ontario that the revised project completion date was estimated to be December 31, 2010, and this report was accepted.  Town staff also phoned the Ministry of Energy and Infrastructure to inform them of the delay in constructing this project.  Town staff were advised that the Ministry encourages the Town to spend the grant funding on this project as quickly as possible, but there are no hard deadlines attached to this grant.

 

Staff recommends the purchase order increases for the design consultants (Chisholm, Fleming and Wardrop) be increased in accordance with the Expenditure Control Policy, to undertake additional work related to the working group recommendations.  Staff also recommend that the additional funding for the purchase order increases be from Engineering Capital Account 083-5350-8114-005.

 

ALIGNMENT WITH STRATEGIC PRIORITIES:

Developing pathway facilities for residents to cycle and walk to work and other destinations is vital to supporting a shift away from increased automobile use, thereby reducing the negative environmental impacts related to carbon dioxide and other tail-pipe emissions. Encouraging more residents to use active transportation for commuter and recreational travel improves individual physical health and providing facilities for cyclists and pedestrians that are separate from automobile traffic improves safety. Active transportation facilities also help families; friends and colleagues enjoy the health and social benefits associated with the physical activity of cycling and walking.

 

 

 

 

RECOMMENDED BY:  

 

 

 

Alan Brown, C.E.T.

Director of Engineering

 

 

Jim Baird, M.C.I.P.,R.P.P.

Commissioner of Development Services

 

ATTACHMENT:

 

Attachment A – Preliminary Pathway Alignment Options

Attachment B – Recommended Milne Creek Crossing

Attachment C – February 24, 2009 Preferred Alignment

Attachment D – Work Group Terms of Reference

Attachment E – Evaluation Criteria Document

Attachment F – Pathway Alignment Map