Operations Department Report

If this information is required in an alternate accessible format, please contact the Municipal Clerk at 905-623-3379 ext. 2102.

Report To: General Government Committee

Date of Meeting: September 26, 2016

Report Number: OPD-010-16

File Number:

Resolution: GG-483-16 C-249-16

By-law Number:

Report Subject: Approval of Regional Municipality of Durham Owned Property Located at 1998 Regional Road 57, in the Municipality of Clarington, as the Preferred Site to Establish a Municipal Hazardous and Special Waste Facility

Recommendations: 1. That Report OPD-010-16 be received;

2. That the Resolution in Attachment 3 be endorsed by separate resolution, asClarington Council’s requirements for the Clarington Municipal Hazardous andSpecial Waste Facility should Regional Council proceed with approving the formerDurham Region Police Service site at 1998 Regional Road 57; and

3. That all interested parties listed in Report OPD-010-16 and any delegations beadvised of Council's decision.

Municipality of Clarington Report OPD-010-16 Page 2

Report Overview The purpose of this report is to provide background information to Council respecting the September 7, 2016 recommendation to the Regional Committee of the Whole to approve the Regional Municipality of Durham owned property located at 1998 Regional Road 57 in Clarington (the former Durham Region Police Services site) as the preferred site to establish a Municipal Hazardous and Special Waste facility, fulfilling the Durham York Energy Centre Host Community Agreement requirement. The report outlines concerns raised by the Municipality respecting the Region’s preferred site, and recommends conditions of approval should Regional Council proceed with approving the Region’s preferred site for development of the Clarington Municipal Hazardous and Special Waste depot.

1. Background 1.1 Discussions between the Municipality of Clarington (Municipality) and the Regional

Municipality of Durham (Region) respecting waste management service levels and projected growth in Clarington, and the related need for a residential hazardous waste drop-off location to support this underserviced area of Durham Region have been on-going since 2001/2, and initially targeted Clarington Operations Department Depot #42 (178 Darlington-Clarke Townline Road) as a potential location.

1.2 A commitment to provide this important service within Clarington was included in the Host Community Agreement for the Durham York Energy Centre, dated February 18, 2010. It states that “Durham shall establish a hazardous waste depot to serve the residents of Clarington within one (1) year of commissioning the EFW Facility.”

1.3 Region Report #2016-J-7 (February 4, 2016) recommended the Durham Region Police Service (DRPS) site located on Regional Road 57 north of Highway 2 in Bowmanville as it was soon to be vacated (Figure 1). This Regionally-owned site is the Region’s preferred location for the Clarington Municipal Hazardous and Special Waste (MHSW) depot. As a result of questions raised regarding the proposed location, including the criteria used for site selection, site size, and site operations, a modified recommendation was adopted. The recommendation required that Municipal and Region Staff “work together to find a mutually agreeable site” for the MHSW depot and “subject to the agreement of all parties to extend the deadline for operation of this facility.”

Municipality of Clarington Report OPD-010-16 Page 3

Figure 1: Key Plan – Region’s Preferred Clarington MHSW Depot Location

1.4 The Municipality has since provided the Region with seven additional sites in Clarington for consideration. On September 7, 2016 Region Report #2016-COW-24 recommended to the Regional Committee of the Whole that the former DRPS site in Bowmanville be approved as the Region’s preferred site to establish a MHSW depot, stating that it met all of the Region’s criteria for a new MHSW facility in Clarington. The targeted date for the commencement of operations is October 1, 2017. Report #2016-COW-24 was tabled to the next Committee of the Whole meeting, October 5, 2016.

1.5 Clarington residents may drop off MHSW at any of the Region’s waste management facilities, the closest of which is the Oshawa Waste Management Facility located on Ritson Road north of Taunton Road in Oshawa. Materials currently accepted at the Region’s MHSW facilities are found in Attachment 1.

2. Discussion 2.1 Concerns Relating to the Region’s Recommended Preferred Site

It is agreed that Clarington is underserviced by the Region’s existing waste management facilities for the purpose of waste diversion. However, to date Clarington Staff have not been informed of how the Region’s preferred location meets all the criteria for the MHSW

Municipality of Clarington Report OPD-010-16 Page 4

depot. Staff have raised concerns about the siting of the Clarington MHSW depot at the former DRPS site respecting the following:

• The specific site location in the Bowmanville West Town Centre;

• The potential traffic issues along Regional Road 57;

• The distance from Clarington’s urban areas of Newcastle and Orono; and

• Expansion of the MHSW site to become an eco-station.

With respect to Regional Official Plan policies (Section 8), the Region’s preferred site is located within a designated Regional Centre. Regional Centres are to be developed as the main concentration of institutional, commercial, residential, major retail, recreational, cultural and major office uses in a well-designed and intensive land use form. The Region’s Official plan also directs Regional Centres to “function as places of symbolic and physical interest for the residents, and shall provide identity to the area municipalities within which they are located.” Regional Centres are to encourage pedestrian and transit oriented areas that incorporate urban design guidelines and solutions.

The Region’s preferred site is designated part of the urban centre in the Draft Clarington Official Plan, and is located within the Bowmanville West Town Centre Secondary Plan area. The area is intended to “serve as a focal point of activity, interest and identity for residents of the Municipality of Clarington.” Any buildings should align with the urban design standards implemented in 2014 through the Bowmanville West Town Centre Secondary Plan. Urban design objectives included in the Secondary Plan seek to create a distinct sense of place through high quality architectural treatments and site planning. Outdoor storage, including waste, is strictly limited and discouraged. High quality landscape treatments or complimentary building material treatments are required.

In response to growing traffic volume through Bowmanville, the Region has initiated a Class Environmental Assessment to examine the need for improvements along Regional Road 57. The preferred solution identified includes road widening to four lanes from Baseline Road to Nash Road. In addition, there is potential for restricted access to the site when a raised median is to be implemented at specific traffic thresholds. The Region should provide confirmation they will address traffic safety issues on Regional Road 57 (a Type A arterial road). The separation of entrances at approximately 50 metres from Stevens Road and 38 metres to G.B. Rickard Complex driveway are minimal at best.

Alternative sites proposed by Municipal Staff were generally located east of Liberty Street, thereby reducing the travel distance for Clarington residents living east of Highway 115/35. However, with the exception of Clarington Operations Department Depot #42 the suggested sites are privately owned and as such, would need to be leased or purchased by the Region. Generally, residents in the Courtice Urban Area have the benefit of relatively close proximity to the Region’s Oshawa Waste Management Facility.

Figure 2 (Attachment 2) shows the location of the Region’s Oshawa Waste Management Facility, the Region’s preferred site at the former DRPS site in Bowmanville, and Clarington Operations Department Depot #42 initially targeted by the Municipality as a

Municipality of Clarington Report OPD-010-16 Page 5

potential location. A conceptual service area radius is shown around each location and are based on a study completed for the Region in 2013 examining feasibility and implementation of Regional eco-stations. An eco-station is a facility designed for the collection of divertable materials (such as tires, waste electronics and reusable materials), excluding any residual waste (or garbage) drop off.

2.2 Desired Site Criteria and Site Sizing

Region Report #2016-COW-24 included criteria that the Region aimed to satisfy in the selection of a preferred site. These desired criteria are summarized as follows:

• A Region owned site, thereby eliminating the cost of land purchase;

• A site with an existing building that could be adaptable to MHSW operations, thereby reducing construction costs;

• A site with an existing paved area for traffic and other site needs, thereby reducing construction costs;

• Existing service connections (water, sewer, utility);

• A central location and proximity to other community and commercial services; and

• A lot size of approximately three acres (1.21 hectares) for a MHSW depot and up to seven acres for future plans to potentially expand the waste services offered (ie. an eco-station).

The site criteria generally support the former DRPS site. Notably, there are no other sites in Clarington with a vacant building(s) owned by the Region, with an existing paved area, and on municipal services. Further, the criteria do not include proximity to Clarington residents who are not within the catchment area of other MHSW facilities (See Figure 2, Attachment 2).

In February 2016 when the former DRPS site was first identified as the recommended site for the Clarington MHSW depot, the Region indicated an intent to also “consider future opportunities to expand the future Clarington MHSW facility beyond the collection of hazardous waste, to act as a potential site for a full-scale eco-station.” The interest is captured by the desired site criteria listed in Report #2016-COW-24.

The Municipality strongly supports the Region’s position on increasing diversion drop-off service levels in Clarington. However, it is questionable how this could be accommodated at the preferred site. At approximately two acres, the former DRPS site is smaller than the desired lot size stated of three acres for a MHSW depot and up to seven acres for an expanded facility in the future. Full eco-station services (i.e. MHSW and other divertable waste) at a single location in Clarington rather than multiple locations is preferred from both the perspective of resident convenience and sustainability.

2.3 Site Conditions for the Region’s Preferred Site

Should Regional Council proceed with approving the former DRPS site at 1998 Regional Road 57 for development of the Clarington MHSW depot, the following conditions of approval are recommended:

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• The Region fulfill the site plan process for development of the MHSW site and any future amendments by adherence to the policies and urban design standards established for the Bowmanville West Town Centre Secondary Plan (February 2014), as amended, including interior storage of materials for the MHSW.

• The multi-use path along the west side of Regional Road 57 between Stevens Road and Highway 2 along the frontage of the property, proposed as a component of the preferred solution for the Regional Road 57 Class Environmental Assessment, to proceed as part of the widening project, be constructed by the Region.

• Preparation, maintenance and adherence to an Emergency Management Plan (including spills), which shall be reviewed and approved by Clarington Emergency and Fire Services prior to the commencement of site operations.

• The Region review traffic design and site connections with the Municipality as part of the detailed design process for the site, and that traffic matters relating to the site operations be revisited with the Municipality when required. In particular the minimum separation to Stevens Road and the entrance to G.B. Rickard Complex.

These points have been included in the Resolution (Attachment 3) which can be brought forward by Regional Council members at the Region’s Committee of the Whole on October 5th, 2016.

3. Financial Considerations The establishment of a MHSW depot in Clarington will fulfill section 6.2 of the Host Community Agreement for the Durham York Energy Centre. Associated costs are the responsibility of the Regional Municipality of Durham.

4. Concurrence This report has been reviewed by David Crome, Director of Planning Services, Tony Cannella, Director of Engineering Services, and Gord Weir, Fire Chief, who concur with the recommendations.

5. Conclusion Staff were requested to review the Region’s Report 2016-COW-24 and provide comments for Committee’s consideration on the Region’s recommended preferred location for the Clarington MHSW depot located at the former DRPS site at 1998 Regional Road 57 in Bowmanville. Staff have concerns about the appropriateness of this site, particularly should it become an eco-station. Notwithstanding the concerns, should the preferred site be approved by Regional Council, recommended conditions of approval are provided in Attachment 3. Clarington supports a waste management strategy that emphasizes reusing, reducing, and recycling to minimize adverse impacts to the environment.

Municipality of Clarington Report OPD-010-16 Page 7

6. Strategic Plan Application Not applicable.

Submitted by: Reviewed by: Frederick J. Horvath Curry Clifford, MPA, CMO

Director of Operations Interim CAO

Staff Contact: Faye Langmaid, Manager of Special Projects 905-623-3379 ext. 2407 or flangmaid@clarington.net

Attachments:

Attachment 1 - MHSW Acceptable / Unacceptable Items Listing Attachment 2 - Figure 2, Hazardous Waste Location Catchment Areas Attachment 3 - Resolution

The following is a list of the interested parties to be notified of Council’s decision:

Mirka Januszkiewicz, Director, Waste Management Services, Regional Municipality of Durham

FJH/FL/ACB/clr

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±Figure 2

Clarington MHSW DepotLocation Options

Lake Ontario

Existing Oshawa WasteManagement Facility

1640 Ritson Road North

Region PreferredClarington MHSW Depot1998 Regional Road 57

Clarington OperationsDepot No. 42

178 Darlington-ClarkeTownline RoadThe c o nc eptua l servic e area ra dius delinea tio ns are b a sed o n the

“Fina l Repo rt: Ec o -Statio n Im plem entatio n a nd Fea sib ility” prepared fo r the Regio na l M unic ipa lity o f Durha m (Co nesto ga -Ro vers & Asso c ia tes, June 2013). The study fo und tha t the m edia n dista nc e travelled to the Osha wa Waste M a na gem ent Fa c ility fro m within the Regio na l M unic ipa lity o f Durha m is 7.2 km . The fo rec a sted c a pture area fo r a po tentia l future Cla ringto n Ec o -Statio n, whic h a c c epts b o th M HSW a nd o ther a c c epta b le waste fo r diversio n, was 8.6 km .M HSW – M unic ipa l Ha zardo us Spec ia l Waste

7.2 km Radius

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Attachment 2 to Report OPD-010-16

Attachment 3 to Report OPD-010-16

Resolution Respecting Regional Municipality of Durham Property Located at 1998 Regional Road 57, in the Municipality of Clarington, as the Preferred Site to Establish a Municipal Hazardous and Special Waste Facility

WHEREAS the Municipality of Clarington supports a waste management strategy that emphasizes reusing, reducing and recycling to minimize adverse impacts to the environment;

WHEREAS Clarington is underserviced by the Region’s existing waste management facilities to support waste diversion;

WHEREAS Durham Region Staff have recommended the site at 1998 Regional Road 57 in Clarington as the preferred location for the Clarington Municipal Hazardous and Special Waste (MHSW) facility to fulfill the Host Community Agreement requirements for the Durham York Energy Centre;

WHEREAS in the view of the Municipality of Clarington the proposed site is deficient for a variety of reasons; and

WHEREAS Regional Staff have not been open to other suggested sites in Clarington;

NOW THEREFORE:

Should Durham Region Council approve 1998 Regional Road 57, the Municipality requests that the Region fulfill;

The Municipal Site Plan process for development of the MHSW site and any future amendments by adherence to the policies and urban design standards established in the Bowmanville West Town Centre Secondary Plan (February 2014), as amended, including interior storage of materials for the MHSW;

The Region construct the multi-use path proposed for the west side of Regional Road 57 between Stevens Road and Highway 2 as part of the Regional Road 57 widening project;

The preparation of, maintenance and adherence to an Emergency Management Plan, approved by Clarington Emergency and Fire Services prior to commencement of site operations;

AND, should traffic matters relating to operations become an issue, that site traffic management be revisited with Clarington Engineering Services;

AND that the time limit for the establishment of the MHSW site in the Host Community Agreement be extended to October 1, 2017.