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1 MEMORANDUM To: Mobushar Pannu, County of Northumberland From: Nick McDonald Date: October 27, 2010 Re: First Draft of Report (Trent River Crossing) Our File No: 4026 Attached to this memorandum is a first draft of a report on the Trent River Crossing project. The intent of this first draft is to review the factors that should be considered in determining which of the seven options that have been identified for the existing bridge crossing can be assessed. The attached also makes recommendations on how the factors could be grouped and how the various factors should be weighed. The report does not make a recommendation on which option should be selected. Instead, my role is to provide the Trent River Steering Committee with some additional information to consider in making a decision and a framework for making such a decision. It is anticipated that the report will be the subject of much discussion and I look forward to meeting with the Sub-Committee that has been struck for this purpose on November 8, Changes to the report are likely necessary following that Sub-Committee meeting. I look forward to your comments and moving forward with the process. Nick McDonald, MCIP, RPP Partner NM/jm Macintosh HD:CURRENT WORK-(JRW):4026 Northumberland Trent River Crossings:4026_Mem- Pannu_Report(jm)Oct2510.docx 113 Collier Street, Barrie, Ontario L4M 1H2 Telephone: (705) Facsimile: (705) Website:

2 Trent River Bridge Crossing - Campbellford: Socio and Economic Factors to Consider Existing Bridge Location Prepared for: Consideration by the Trent River Crossing Steering committee Prepared on October 27, 2010

3 Table of Contents 1.0 INTRODUCTION BACKGROUND ESTABLISHING SOCIO AND ECONOMIC FACTORS AND CRITERIA Introduction The Starting Point - Provincial Policy Provincial Policy Statement (2005) Places to Grow Act and the Growth Plan for the Golden Horseshoe Listing of Factors to Consider GROUPING THE FACTORS Establishing the Framework - The AECOM and Genivar Approaches Developing a New Approach Based on January 5, 2010 County Report The Study Lens Approach WEIGHTING THE CRITERIA NEXT STEPS... 16

4 1.0 INTRODUCTION The intent of this 'focused' report is to provide the Trent River Crossing Steering Committee with recommendations on the socio and economic factors that should be considered in the assessment of seven distinct construction options, all of which involve retaining the existing bridge location as the main crossing that connects the east and west sides of Campbellford. In addition, this report makes recommendations on how the identified factors can be grouped for ease of consideration and deliberation. This report also makes some preliminary recommendations on how the identified factors, after they are grouped, can be weighted as part of the focused process that relates again only to the existing bridge location. Lastly, and in recognition of the need following the consideration of the existing bridge location to then compare the selected existing bridge location alternative with the other options identified in the broader Environmental Assessment (EA), this report includes a number of recommendations on what factors could be considered in the broader EA and how those factors can be weighted. 2.0 BACKGROUND Given the age of the existing bridge structure and projected increases in traffic, a need was identified to review a number of options with respect to providing that surety of access over the Trent River for the long term. An EA was initiated for this purpose in November 2007 and it reviewed a number of options (the details of which can be found in the June 8, 2009 Environmental Study Report prepared by AECOM). The final report recommended that a new bridge be constructed between Second Street and Alma Street across the Trent River. This recommendation was supported by Trent Hills Council. On October 21, 2009 Northumberland County Council considered a motion to approve the final Environmental Study Report prepared by AECOM. However the motion was deferred until the December 9, 2009 meeting in order to determine the cost comparisons between a four lane bridge at Bridge Street and two two lane bridges one at Bridge Street and one at Alma/Second Streets including roads and property costs. Inherent in the Resolution was a desire to ensure that all relevant issues relating to the potential for twinning the existing bridge at Bridge Street were considered. Prior to the December 9, 2009 meeting, Meridian Planning Consultants was retained by the County to review a number of the relevant land use planning issues that should be considered in the context of making a significant public works and land use decision in the Community of Campbellford. The report was completed on December 3, Prior to preparing the December 3, 2009 report, the author of the report (Nick McDonald) reviewed the work completed to date, the Municipality s Official Plan, the Growth Plan for the Greater Golden Horseshoe, the Provincial Policy Statement and visited the area to understand what is being proposed. In addition to the above, the existing bridge location and the option involving the twinning of that bridge, was reviewed, with this option involving the removal of a number of buildings. The review Trent River Bridge Crossing - Campbellford 1 Socio and Economic Factors to Consider Existing Bridge Location October 27, 2010

5 in this regard was focused on the opportunities, from a number of perspectives, that may present themselves as a consequence of removing a number of buildings. It was noted in the December 3, 2009 Meridian report that there were a number of factors to consider in making a significant public works decision such as this one. In this case, which involves the construction of a new bridge across the Trent River, factors to consider include the effect of any decision on the viability of the downtown area and on the existing and relatively stable residential neighbourhoods that also may be affected by the proposed bridge location. In essence, any public works decision, like a land use planning decision, has to be balanced against a number of different public interest objectives, all of which are intended to enhance quality of life and improve our living environment. At the December 9, 2009 County Council meeting, County Council determined that it wished to see further investigations to gain a higher degree of certainty with respect to the feasibility and cost of construction a new bridge beside the existing bridge and what the County s long-term cost will be to meet its arterial road responsibilities. Further discussion on this matter occurred at the January 5, 2010 County Council meeting where County staff were directed to prepare a detailed plan of action and a next steps necessary to proceed with the overall Environmental Assessment. On January 28, 2010, County Council supported a recommendation made by staff that a Request for Proposal be issued to examine the costs and feasibility of the twinning option and the replacement of the existing bridge. GENIVAR was subsequently retained to complete the feasibility study and as a consequence of that study three distinct options were identified, all of which involves the existing bridge. The first option calls for the replacement of the existing bridge by a new two-lane, three-lane or four-lane bridge. The second option involved the twinning of the existing bridge either by adding two lanes on the north side or two lanes on the south side. A third option involves widening and upgrading the existing bridge to three-lanes or fourlanes. This means that there are three broad options and seven sub-options. 3.0 ESTABLISHING SOCIO AND ECONOMIC FACTORS AND CRITERIA 3.1 INTRODUCTION While the Environmental Assessment process is very well laid out by the Province and by the Association of Municipal Engineers, the one component of any Environmental Assessment process that is and should be tailor made to each circumstance is the criteria established to review alternative solutions. It is these criteria that are relied upon by decision makers to determine whether there is one solution that most advances the public interest. In some circumstances, the criteria are developed in advance of the Terms of Reference for an Environmental Assessment and in other cases they are developed and modified through an Environmental Assessment process based on the solutions identified, public input and other public interest objectives that may become apparent throughout the course of the study. Trent River Bridge Crossing - Campbellford 2 Socio and Economic Factors to Consider Existing Bridge Location October 27, 2010

6 In the report prepared by Peter Nielsen dated January 28, 2010 to County Council with respect to the Trent River crossing, reference is made to a January 5, 2010 Council report in which it was recommended that the study recommendations/objectives be amended to indicate the following: To develop an affordable long-term plan for the County Road system in Campbellford which will support an attractive prosperous community. It is my opinion that this objective provides the basis for the establishment of a series of factors and criteria that consider the implications of any alternative on the desire to support an attractive prosperous community. Four supporting objectives were also identified in the report, with the first also providing the basis for the establishment of a range of criteria that consider the implications of any alternative on the downtown area, quality of life and the community itself. This objective is reproduced below: Ensure that the County road system will provide an acceptable level of traffic service while at the same time supporting a vibrant downtown, preserving healthy sustainable neighbourhoods and complementing the river waterfront development and supporting the Official Plans objectives for Campbellford. The above objective appears to indicate that the determination of an appropriate level of service is important for both the County and the Municipality, but that desire for an appropriate level of service has to also be balanced against other objectives. 3.2 THE STARTING POINT - PROVINCIAL POLICY The policies of the Provincial government have a significant bearing on the development of criteria and the factors that should be considered when the criteria are assessed, since they are intended to balance a number of competing objectives which are all in the public interest. Section 2 of the Planning Act requires that a municipal council have regard to matters of Provincial interest in carrying out its responsibilities under the Planning Act. This list is extensive and includes the following matters: d) the conservation of features of significant architectural, cultural, historical, archaeological or scientific interest; f) the adequate provision and efficient use of communication, transportation, sewage and water services and waste management systems; h) the orderly development of safe and healthy communities; h.1) the accessibility for persons with disabilities to all facilities, services and matters to which this Act apples; Trent River Bridge Crossing - Campbellford 3 Socio and Economic Factors to Consider Existing Bridge Location October 27, 2010

7 j) the adequate provision of a full range of housing; k) the adequate provision of employment opportunities; l) the protection of the financial and economic well-being of the Province and its municipalities; m) the coordination of planning activities of public bodies; o) the protection of public health and safety; p) the appropriate location of growth and development; q) the promotion of development that is designed to be sustainable, to support public transit and to be oriented to pedestrians. The matters of Provincial interest are self-explanatory, however, there is clearly a focus on land use planning being a tool to maintain and enhance quality of life. These matters of Provincial interest are further detailed in policy statements approved by the Provincial Cabinet. These policy statements and the process for approving those is detailed under Section 3 of the Act. Section 3(1) of the Act enables the Ministry of Municipal Affairs to issue policy statements approved by the Provincial Cabinet on matters relating to municipal land use planning and matters of Provincial interest. Section 3(5) of the Act requires any decision by a Council of any Municipality in respect of any exercise of any authority that affects a planning matter shall: be consistent with the policy statements issued under subsection (1) that are in effect on the date of the decision, and shall conform with the provincial plans that are in effect on that date, or shall not conflict with them, as the case may be. The policy statement referenced above is the 2005 Provincial Policy Statement (PPS). The Provincial plan identified in sub-section b) above to be considered in this context is the Growth Plan for the Greater Golden Horseshoe. Both of these Provincial documents contain policies on transportation and the movement of goods, however they also contain policies on complete communities, the viability and vibrancy of downtowns and main streets and economic development in general. With respect to public works, Section 24(1) of the Act requires that: where an Official Plan is in effect, no public work shall be undertaken and, except as provided in Subsections (2) and (4), no by-law shall be passed for any purpose that does not conform [to the Official Plan]. Notwithstanding the above subsection, Section 24(3) of the Planning Act indicates that: Trent River Bridge Crossing - Campbellford 4 Socio and Economic Factors to Consider Existing Bridge Location October 27, 2010

8 The Council of the Municipality may take into consideration the undertaking of a public work does not conform with the Official Plan and for that purpose the Council may apply for any approval that may be required for the work, carry out any investigations, obtain any reports or take other preliminary steps incidental to and reasonably necessary for the undertaking of the work, but nothing in the subsection authorizes the actual undertaking of any public work that does not conform with a Official Plan. It is lastly noted that public work is defined in Section 1(1) of the Act to mean: any improvement of a structural nature or other undertaking that is within the jurisdiction of the council of a municipality or a local board. The above Sections of the Planning Act dealing with public works have been identified because it is recognized that the bridge crossing option initially recommended in the June 8, 2009 Environmental Study Report was that a new bridge be constructed between Second Street and Alma Street. It was noted in the December 2009 Meridian report that Section of the Trent River Official Plan indicates that the location of the roads shown on Schedule #5 are approximate. In addition, it was noted that amendments to the Official Plan will not be required to make minor adjustments or deviations to the location of roads provided that the general intent of the Plan is maintained. Considering that the proposed bridge structure between Second Street and Alma Street is not currently shown on Schedule #5, this would represent a more than minor change to the Transportation Network in Campbellford, which means that an amendment to the Official Plan is required. However, if the existing bridge location is retained as the location for the future crossing, then an amendment to the Official Plan would not be required since the existing bridge location is currently shown of Schedule # PROVINCIAL POLICY STATEMENT (2005) The current Provincial Policy Statement (PPS) came into effect in May It aims to guide appropriate development while protecting resources of provincial interest, public health and safety, and the quality of the natural environment. Policies regarding Building Strong Communities focus on the orderly development of land including works necessary to meet the current and projected need for infrastructure. There are a number of policies in the PPS that are relevant to the current decision making process. In Section 1.1.1, the PPS states that healthy, liveable and safe communities are created and maintained through a variety of mechanisms, including: Trent River Bridge Crossing - Campbellford 5 Socio and Economic Factors to Consider Existing Bridge Location October 27, 2010

9 Promoting efficient development and land use patterns which sustain the financial well-being of the Province and municipalities over the long-term; Avoiding development and land use patterns which may cause environmental or public health and safety concerns; (PPS s1.1.1(c)) and, Ensuring that necessary infrastructure and public service facilities are or will be available to meet current and projected needs. (PPS s1.1.1(g)) The PPS, under Section 1.5.1, details how municipalities should promote healthy and active communities: Healthy, active communities should be promoted by: a) planning public streets, spaces and facilities to be safe, meet the needs of pedestrians, and facilitate pedestrian and nonmotorized movement, including but not limited to, walking and cycling; b) providing for a full range and equitable distribution of publiclyaccessible built and natural settings for recreation, including facilities, parklands, open space areas, trails and, where practical, water-based resources; and, c) providing opportunities for public access to shorelines (PPS s.1.5.1) The PPS also requires a coordinated approach to planning major infrastructure and to support long term economic prosperity by: Maintaining and where possible, enhancing the vitality and viability of downtowns and main streets; (PPS s (b)) Providing for an efficient, cost effective, reliable multi-modal transportation system that is integrated with adjacent systems and those of other jurisdictions, and is appropriate to address projected needs; (PPS s1.7.1(d)) and, Planning so that major facilities (such as airports transportation/transit/rail infrastructure and corridors, intermodal facilities, sewage treatment facilities, waste management systems, oil and gas pipelines, industries and resource extraction activities) and sensitive land uses defined to include residential uses are appropriately buffered and/or separated from each other to prevent adverse effects from odour, noise and other contaminants and minimize risk to public health and safety; (PPS s (e)) Trent River Bridge Crossing - Campbellford 6 Socio and Economic Factors to Consider Existing Bridge Location October 27, 2010

10 On the basis of detailed review of the PPS, attached to this document as Appendix A is a listing of those PPS policies and the criteria that could be considered as part of the current review process focused on the existing bridge location. Each of those relevant policies have been identified and translated into a question or test for which an answer should be considered and developed. The factors that would then be considered are also identified. A summary of the implications of these policies on the current process is contained within Section PLACES TO GROW ACT AND THE GROWTH PLAN FOR THE GOLDEN HORSESHOE The Ontario Government adopted the Places to Grow Act in June The Act provides a framework for the adoption of regional-scale Growth Plans. The first of these, the Growth Plan for the Golden Horseshoe, was adopted by Regulation in June The Growth Plan is a statement of Provincial policy and is intended to direct local planning decisions to The intent of the Plan is to significantly reduce urban sprawl and land consumption while making more efficient use of existing infrastructure. Growth is to be directed to settlement areas in accordance with Section (j), of which Campbellford is one of several small towns and cities within the Growth Plan area. The guiding principles of the Growth Plan are contained within Section It is indicated in that section that: the vision for the GGH is grounded in the following principles that provide the basis for guiding decisions on how land is developed, resources are managed and public dollars invested: Build compact, vibrant and complete communities; Plan and manage growth to support a strong and competitive community; Protect, conserve, enhance and wisely use the valuable natural resources of land, air and water for current and future generations; Optimize the use of existing and new infrastructure to support growth in a compact efficient form; Provide for different approaches to managing growth that recognize the diversity of communities in GGH; and, Promote collaboration among all sectors government, private and non-profit and residents to achieve the vision. The first two principles are intended to ensure that any public dollars invested should have the effect of building compact, vibrant and complete communities and support a strong and competitive economy. The fourth principle indicates that public dollars should be directed to public works that optimize the use of existing and new Trent River Bridge Crossing - Campbellford 7 Socio and Economic Factors to Consider Existing Bridge Location October 27, 2010

11 infrastructure to support growth in a compact and efficient form. While both existing and new is mentioned in this context, the Growth Plan prefers the optimizing of existing infrastructure where possible first, before considering alternatives. In carrying out appropriate planning for transportation, Section of the Growth Plan indicates that: in planning for the development, optimization and/or expansion of new or existing transportation corridors, the Minister s of Public Infrastructure Renewal and Transportation, other Minister s of the Crown, other public agencies and other municipalities will ensure that corridors are identified and protected to meet current and projected needs for various travel modes. The implication of Section is that municipalities must consider where major transportation corridors will be upgraded or developed in the context of an overall land use planning exercise that considers all Provincial interests and Provincial policies. Section of the Growth Plan lists the long term planning goals for the transportation system: The transportation system within the GGH will be planned and managed to a) provide connectivity among transportation modes for moving people and for moving goods; b) offer a balance of transportation choices that reduces reliance upon any single mode and promotes transit, cycling and walking; c) be sustainable, by encouraging the most financially and environmentally appropriate mode for trip-making; d) offer multi-modal access to jobs, housing, schools, cultural and recreational opportunities, and goods and services; and, e) provide for the safety of system users. The above goals are self-explanatory and require that decision makers consider a number of factors (connectivity, provision of choices, financial, environmental and safety). On the basis of detailed review of the Growth Plan, attached to this document as Appendix B is a listing of those Growth Plan policies and the criteria that could be considered as part of the current review process focused on the existing bridge location. Each of those relevant policies have been identified and translated into a question or test for which an answer should be considered and developed. The factors that would then be considered are also identified. A summary of the implications of these policies on the current process is contained within Section 3.5. Trent River Bridge Crossing - Campbellford 8 Socio and Economic Factors to Consider Existing Bridge Location October 27, 2010

12 3.5 LISTING OF FACTORS TO CONSIDER On the basis of the analysis carried out of Provincial policies as set out in Appendices A and B, a number of factors to consider on a go forward basis arise multiple times as described below: 1. Level of service provided by alternative. 2. Short-term loss of assessment. 3. Effect of the alternative on the ability to create new public spaces. 4. Timing of construction. 5. Potential for alternative to stimulate investment and the more efficient use of land. 6. Impacts on the potential for the development of new housing and business opportunities through intensification. 7. Impacts on the timing of development of new housing and business opportunities. 8. Impacts on the potential for the greater use of existing space within existing buildings. 9. Impacts on traffic flow and ease of access over long term. 10. Short-term loss of housing units and retail spaces. 11. Impacts on waterfront access during construction and beyond. 12. Location of waterfront access. 13. Safety of waterfront access during construction and beyond. 14. Duration of construction and impacts on assessment and business. 15. Temporary loss of parking and impacts on assessment and business. 16. Permanent loss of parking and impacts on assessment and business. 17. Impacts of removal of buildings in terms of supporting regeneration efforts. 18. Impacts on traffic circulation (short and long-term). 19. Impacts from construction traffic, noise and dust (related to duration of construction). 20. The effect of the alternative on quality of life. Trent River Bridge Crossing - Campbellford 9 Socio and Economic Factors to Consider Existing Bridge Location October 27, 2010

13 21. Long term assessment impacts. 22. Impacts of creating new public spaces on investment potential and attractiveness for addition economic development. 23. Location of sidewalks (one-side or both sides). 24. Width of sidewalk and impacts on safety. 25. Location of bike lanes on one-side or both sides. 26. Location of bike lanes (in dedicated lane or not in lane). 27. Width of bike lanes. 28. Impacts on pedestrian and bicycle safety on bridge. 29. Ease of access to waterfront. 30. Visibility of public spaces from surrounding roads from a safety perspective. 31. Amount of public space available for public use. 32. Useability of public space as a consequence of access improvements. 33. Potential to enhance existing public spaces by improving access and useability. 34. Timing of enhancements and improvements. 35. Upfront construction costs. 36. Cost to maintain bridge structure. 37. Cost to replace bridge structure. 38. The degree to which the existing structure is being utilized 39. Ability to provide ease of access during construction for all modes of travel. 40. Number of lanes open during construction for all modes of travel. 41. Improvements to emergency access across river during and after construction. 42. Impacts on public safety during construction 43. Ability to provide surety of access in the short and long terms to existing residences and businesses. 44. Impact on availability of parking for tourists. 45. Location of parking in relation to location of tourist traffic. Trent River Bridge Crossing - Campbellford 10 Socio and Economic Factors to Consider Existing Bridge Location October 27, 2010

14 46. Ability to reduce motor vehicle crossings by providing better access to nonmotorized modes of transport. 47. Impacts on built heritage resources. 48. Impacts on quality of life as a consequence of additional investment in the community. 49. Effect of alternative on the number of people of walking and cycling. 50. Impacts of alternative on quality of public spaces. 51. Level of service provided by alternative as it relates to goods movement (truck traffic). 52. Impacts on the flow of goods across the bridge. 53. Width of travel lanes for truck traffic. 54. Amount of time it takes to cross the bridge with trucks. 4.0 GROUPING THE FACTORS 4.1 ESTABLISHING THE FRAMEWORK - THE AECOM AND GENIVAR APPROACHES In order to provide an appropriate framework for assessing the many criteria identified in Section 3.0 of this report, there is a need to group the factors identified in a manner that provides for a more manageable assessment process. To a very large extent, the grouping of the factors is typically a function of the overall objective of the study process and this is typically identified up-front as a problem statement in an EA. According to Section 1.3 of the ESR prepared by AECOM, the Problem/Opportunity Statement was set out as reproduced below: Confirm the need for an additional Trent River crossing within the geographic limits of the Town of Campbellford, identify the scope and nature of the improvements required to satisfy existing and future river crossing demands, select a crossing location/corridor, and prepare a preliminary design and cost estimate for all infrastructure associated with the preferred crossing alternative. What is clear about the Problem/Opportunity Statement referenced above is that there is no overall community goal identified. Instead, the Problem/Opportunity Statement is much more about process in terms of selecting an appropriate option. In addition, the Problem/Opportunity statement appears to restrict the geographic scope of the project to the Town of Campbellford, when it should have instead been considering a much wider area. On the basis of the Problem/Opportunity Statement, six broad criteria were initially established by AECOM as set out in Table 20 of their report. These criteria are set out below: Trent River Bridge Crossing - Campbellford 11 Socio and Economic Factors to Consider Existing Bridge Location October 27, 2010

15 1. Natural Environment; 2. Social Environment; 3. Cultural Environment; 4. Economic Environment; 5. Transportation; and, 6. Engineering and Construction Cost. The Natural Environment criteria was subsequently deleted since the impacts of each alternative were determined to be similar. A number of sub-factors were then identified under each of the criteria. With many Environmental Assessments across Ontario, particularly those that involve transportation infrastructure, a key consideration is the overall intent of the project, in terms of its community benefits and opportunities. However, the criteria and the factors identified in the AECOM Report do not consider overall community benefits and opportunities and as a consequence they cannot be relied upon as a starting point. As noted previously, Genivar was subsequently retained in 2010 to review the existing bridge location in detail. As part of their review process, they established four distinct criteria categories as set out below: 1. Engineering and Construction Costs; 2. Construction Staging; 3. Transportation; and, 4. Environmental, Socio-economic and Cultural Environment. As with the criteria included within the AECOM Report, the criteria identified by GENIVAR do not consider overall community benefits either in a significant manner and this is primarily because the scope of their work was restricted to the existing bridge location. 4.2 DEVELOPING A NEW APPROACH BASED ON JANUARY 5, 2010 COUNTY REPORT To provide some direction on the grouping of factors on a go-forward basis, the study objectives identified in the January 5, 2010 County Council Report are considered to be an appropriate place to begin since they do provide some insight on how this grouping should occur. In this regard, it was indicated in that report that the overall study objective should be to develop an affordable, long term plan for the County Road System in Campbellford which will support an attractive prosperous community. The key terms in this objective are affordable, long term, attractive and prosperous. The first two words deal with issues such as cost effectiveness and getting the best value over the long term to provide surety of access. The two latter terms speak to the benefits that any public work should have on the community, which in this case would be to support Campbellford as an attractive and prosperous community. The first supporting objective identified in the January 5, 2010 report is to ensure that the County Road System will provide an acceptable level of traffic service while at the same time supporting a vibrant downtown, preserving healthy sustainable Trent River Bridge Crossing - Campbellford 12 Socio and Economic Factors to Consider Existing Bridge Location October 27, 2010

16 neighbourhoods and complementing the river waterfront development and supporting the Official Plan s objectives for Campbellford. This supporting objective is a further articulation of the overall objective and as a consequence, the key ideas incorporated within this supporting objective are: Providing an acceptable level of service. Supporting a vibrant downtown. Preserving healthy sustainable neighbourhoods. Complementing waterfront development. Supporting the Official Plan s objectives for Campbellford. Given this expressed County direction, it is recommended that a broader and more inclusive objective be established, with this objective being turned into a question: How can the level of service be maintained to provide long term surety of access across the Trent River in a cost-effective manner (short and long term) and in a manner that provides opportunities for the enhancement of the existing downtown core and new investment in key locations that support an enhanced quality of place and quality of life. Based on the above, below are the main themes included within the objective: Enhanced level of service. Provision of long term surety of access. Enhancement of existing downtown core. Investment in key locations. Enhancement of quality of place. Enhancement of quality of life. 4.3 THE STUDY LENS APPROACH In order to provide the basis for the grouping of the criteria based on the above recommended objective, it is recommended that a study lens approach be utilized, with each study lens providing the basis for the establishment of criteria groups, with each of these groups being supported by a number of factors that not only deal with transportation, but community enhancement as well. On the basis of the above, four study lens are recommended as set out below: 1. Transportation; 2. Community Enhancement; 3. Environment; and, 4. Economics. A description of each of these lens and, the criteria that would be included within each are shown on Table A as set out below: Trent River Bridge Crossing - Campbellford 13 Socio and Economic Factors to Consider Existing Bridge Location October 27, 2010

17 STUDY LENS Transportation Community Enhancement TABLE A - STUDY LENS CRITERIA FOCUS GROUP Level of Service The focus is on the level of service provided and the duration of the level of service, on accommodating all forms of motorized and non-motorized movements and the opportunities that may exist for each mode. An additional focus is on the impacts on traffic flow (short and long terms) and parking. The focus is on the creation of opportunities for increased urban development (in the vicinity and in the downtown generally), on the potential to create/enhance public open space and the impacts on urban development Modes of Travel Access during Construction Parking Management Community Design WHAT IS BEING COMPARED? The level of service provided by each alternative and the length of time the level of service remains constant is being compared. The impacts of each alternative on traffic movement, emergency access, goods movement, and bicycle and pedestrian access and access for disabled persons is being compared. The implications of each alternative on the ability to provide access to adjacent uses and over the river is being compared. The impacts of each alternative on the number and location of parking spaces in the short and long terms is being compared. The impacts of each alternative on urban form and connections to the river are being compared. Public Realm The implications of each alternative on the public realm adjacent to the Trent River and in the vicinity of the bridge is being compared. opportunities in general. Land Use The impacts of each alternative on land use in the area is being compared. Environment The focus is on the minimization of the negative effects on the social, cultural and natural environments and the potential for environmental enhancement. Social The impacts of each alternative on the availability of housing opportunities is being compared. Health and Recreation The impacts of each alternative on the potential enhancement of the public open space network and on the potential to encourage alternative modes of travel are being compared as are the potential health impacts resulting from construction activities. Trent River Bridge Crossing - Campbellford 14 Socio and Economic Factors to Consider Existing Bridge Location October 27, 2010

18 STUDY LENS Economics FOCUS The focus is on the overall cost of the project, long term maintenance costs, short term and long term economic costs and overall short term and long term economic benefits, which may include additional development opportunities and the overall benefits to the economy. CRITERIA GROUP WHAT IS BEING COMPARED? Business The short and long term impacts on business are being compared. Natural The impacts of the alternative on the natural environment are compared. Cultural The impacts of each alternative on cultural heritage resources such as historical buildings are compared. Capital Costs Economic Impacts The cost of each alternative is compared (both up front and long term). The economic impacts of each alternative on opportunities that may be created as a consequence are being compared. The 54 Factors listed in Section 3.5 of this report have been placed into the above criteria groups as set out in Appendix C. Based on a review of Appendix C, it is clear that a number of the factors identified through the review of Provincial Policy are repeated in each of the study lens. It is noted that in many cases however, the matters to consider with respect many be different depending on the study lens. This is appropriate, and it merely indicates that many of the issues to be considered have broad implications and impacts in a number of areas. 5.0 WEIGHTING THE CRITERIA The ranking of criteria in terms of their weight is often the most difficult part of any EA process. There are generally two ways in which this is done. The first involves the assignment of a numerical value to each with the weight of each relating to the level of importance and the magnitude of the net effects associated with an alternative. The second approach involves the consideration of all of the criteria and the balancing of each against each other, the overall objectives of the project and the objectives of the County of Northumberland and the Municipality of Trent Hills. This has been called the Reasoned Argument (Trade-off) Evaluation Method. While the second approach is much more subjective, it can be just as subjective as the first approach since a determination of the value or weight of each criteria would have to be determined upfront through some kind of relative weighting process. As with the grouping of the criteria and the identification of the factors to be considered, the overall objective of the study also has a significant impact on how Trent River Bridge Crossing - Campbellford 15 Socio and Economic Factors to Consider Existing Bridge Location October 27, 2010

19 each of the criteria should be weighted in terms of their relative assessment against each other. As set out in the previous section of this report, four study lenses have been identified as set out below: 1. Transportation 2. Community Enhancement 3. Environment 4. Economics Many of the factors considered in accordance with each study lens are considerations in more than one of those study lenses. However, there are two very basic criteria that need to be addressed in the context of making a decision. The first has to do with providing surety of access over the long term. It is this surety of access which provides certainty to business owners and residents and when provided, will ensure that issues with respect to crossing the river are dealt with for the foreseeable future. The second has to do with community enhancement and the benefits that may accrue as a consequence of selecting an alternative. It is our opinion that any infrastructure investment has to be in the public interest and that all opportunities to capitalize on the infrastructure investment from a community enhancement perspective should be explored. With the above in mind, it is our opinion that each of these two key criteria should be given equal weight. Notwithstanding the above however, there is a need to consider other issues and they need to be factored into the assessment process. While these other issues are weighted less, their importance is not being lessened from a relative prospective if this approach was selected. On the basis of the above, below is a suggested weighting approach for the four study lenses if it is determined that a weighting approach is necessary. STUDY LENS WEIGHTING Transportation 35% Community Enhancement 35% Environment 15% Economics 15% The other approach is to apply an equal weight to each of the four study lenses. Further discussion on how the weighting should occur is necessary. The intent of this report is to identify one option for consideration. Other options may be feasible and deemed to be desirable by the group. 6.0 NEXT STEPS This report is the first draft of a report that deals only with the seven options focused on the existing bridge location. Following a meeting with a sub-committee of the Trent River Crossing Steering Committee on November 8, 2010, a second draft of this report incorporating their comments will be prepared and then discussed at the next meeting of this sub-committee which is scheduled for November 23, A final Trent River Bridge Crossing - Campbellford 16 Socio and Economic Factors to Consider Existing Bridge Location October 27, 2010

20 report will then be prepared, with this final report also containing a discussion on the implications of the approach recommended in this report on the broader EA. Trent River Bridge Crossing - Campbellford 17 Socio and Economic Factors to Consider Existing Bridge Location October 27, 2010

21 APPENDIX A Criteria based on the Provincial Policy The Provincial Policy Statement SECTION POLICY KEY WORDS FOR DECISION MAKERS 1.0 Ontario's long-term prosperity, environmental health and social well being depend on wisely managing change and promoting efficient land use and development patterns. Efficient land use and development patterns support strong, liveable and healthy communities, protect the environment and public health and safety, and facilitate economic growth. Wisely managing change Promoting efficient land use and development patterns POTENTIAL CRITERIA 1. Will the proposed alternative support and provide for efficient land use and development patterns that support strong, liveable and healthy communities, protect the environment and public health and safety, and facilitate economic growth? 2. Will the alternative support economic growth locally? 3. Will the alternative affect the prospects for local economic growth? PRIMARY FACTORS TO CONSIDER Level of service provided by alternative Duration of construction Short-term loss of assessment. Effect of the alternative on the ability to create new public spaces. Timing of construction. Potential for alternative to stimulate investment and more efficient use of land. Potential for the development of new housing and business opportunities. Impacts on traffic flow and ease of access over long term. Impacts on goods movement across river a) Healthy, liveable and safe communities are sustained by promoting efficient development and land use patterns which sustain the financial well being of the Province and municipalities Promoting efficient land use and development patterns Sustain the financial well being Will the proposed alternative provide for the efficient use of land in the downtown area generally? 2. Will the proposed alternative provide for Level of service provided by alternative Length of time associated with level of service. Duration of construction Provincial Policy Factors 1 Trent River Crossing EA - Appendix A - PROVINCIAL POLICY STATEMENT October 27, 2010

22 SECTION POLICY KEY WORDS FOR DECISION MAKERS over the long term. POTENTIAL CRITERIA the efficient use of land in the vicinity of the bridge? 3. Will the alternative affect the financial well being of the Municipality? 4. Will the removal of buildings create a more positive investment climate? 5. Will the short-term loss of assessment be made by a long-term gain in assessment as a consequence of the alternative? 6. What effect will the alternative have on the ability to create new public spaces? 7. Will the addition of new public open space areas provide for more investment and a more efficient use of land? PRIMARY FACTORS TO CONSIDER Impacts on assessment. Effect of the alternative on the ability to create new public spaces. Potential for alternative to stimulate investment and more efficient use of land. Potential for the development of new housing and business opportunities. Impacts on traffic flow and ease of access over long term b) Healthy, liveable and safe communities are sustained by accommodating an appropriate range and mix of residential, employment (including industrial, commercial and institutions uses), recreational and open space uses to meet long-term needs. Accommodating an appropriate range and mix Meet long term needs 1. Does the alternative support the provision of a range and mix of uses in the downtown area? 2. If residential uses are lost as a consequence of selecting the alternative, can these residential uses be located elsewhere? 3. Will the alternative Duration of construction. Short-term loss of assessment. Short-term loss of housing units and retail spaces. Effect of the alternative on the ability to create new public spaces. Provincial Policy Factors 2 Trent River Crossing EA - Appendix A - PROVINCIAL POLICY STATEMENT October 27, 2010

23 SECTION POLICY KEY WORDS FOR DECISION MAKERS POTENTIAL CRITERIA improve access to open space uses and areas? PRIMARY FACTORS TO CONSIDER Potential for the development of new housing and business opportunities. Length of time associated with appropriate level of service f) Healthy, liveable and safe communities are sustained by improving accessibility for persons with disabilities and the elderly by removing and/or preventing land use barriers which restrict their full participation in society. Improving accessibility Removing land use barriers Preventing land use barriers 1. Will the alternative improve access to the waterfront for persons with disabilities? 2. Will the alternative remove an existing land use barrier? Impacts on waterfront access Location of waterfront access Safety of waterfront access Nature or waterfront access for people with disabilities g) Healthy, liveable and safe communities are sustained by ensuring that necessary infrastructure and public service facilities are or will be available to meet current and projected needs. Ensuring that... Are or will be available.. 1. Will the alternative meet current and projected needs? Level of service provided by alternative. Timing of construction. Length of time associated with appropriate level of service Sufficient lands shall be made available through intensification and redevelopment and, if necessary, designated growth areas to accommodate an appropriate range and mix of employment opportunities, housing and other land uses to Accommodate an appropriate range and mix Will the alternative support intensification and redevelopment in the downtown core generally? 2. Will the alternative support intensification and redevelopment in the vicinity of the bridge crossing? Potential for alternative to stimulate investment and more efficient use of land. Potential for the development of new housing and business opportunities. Effect of additional Provincial Policy Factors 3 Trent River Crossing EA - Appendix A - PROVINCIAL POLICY STATEMENT October 27, 2010

24 SECTION POLICY KEY WORDS FOR DECISION MAKERS meet projected needs for a time horizon of up to 20 years. POTENTIAL CRITERIA 3. Will additional opportunities for employment be created as a consequence of the selected alternative? PRIMARY FACTORS TO CONSIDER intensification on need for additional land in designated growth areas Settlement Areas shall be the focus of growth and their vitality and regeneration shall be supported. Shall be the focus of... Vitality shall be supported Regeneration shall be supported 1. Does the alternative support the vitality and regeneration of the Settlement Area? 2. Will the proposed alternative provide for the efficient use of land in the downtown area generally? 3. Will the proposed alternative provide for the efficient use of land in the vicinity of the bridge? 4. Will the alternative affect the financial well being of the Municipality? 5. Will the removal of buildings create a more positive investment climate? 6. Will the short-term loss of assessment be made by a long-term gain as a consequence of the alternative? 7. What effect will the alternative have on the ability to create new public spaces? Duration of construction and impacts on assessment and business. Temporary loss of parking and impacts on assessment and business. Permanent loss of parking and impacts on assessment and business. Impacts of removal of buildings in terms of supporting regeneration efforts. Impacts on traffic circulation (short and longterm) Impacts from construction traffic, noise and dust (related to duration of construction). Impacts on goods movement across river. Length of time associated with appropriate level of service. Potential for the development of new Provincial Policy Factors 4 Trent River Crossing EA - Appendix A - PROVINCIAL POLICY STATEMENT October 27, 2010

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