1.         INNES ROAD SNOW DISPOSAL FACILITY - 2170 MER BLEUE ROAD

 

DÉPÔT DE NEIGE DU CHEMIN INNES – 2170, CHEMIN MER BLEUE

 

 

 

Committee recommendations as amended

 

1.                  That the implementation of the Innes Snow Disposal Facility at 2170 Mer Bleue Road proceed, and that staff undertake the necessary steps of updating the noise study using criteria of the current Official Plan and developing an Official Plan Amendment to exempt the Innes Snow Disposal Facility site from the Mixed Use Centre designation as proposed in this report.

 

2.                  That staff review the 1:50 year snow storage event criteria and evaluate the impact of the 1:25 year criteria and report back on the City’s needs for current and planned snow disposal facilities in the context of modeling for this evaluation.

 

 

RecommandationS MODIFIÉES du Comité

 

1.                  Que la mise en oeuvre du dépôt de neige Innes situé au 2170, chemin Mer Bleue aille de l’avant, et que le personnel prenne les mesures nécessaires en vue de mettre à jour l’étude sur le bruit à l’aide des critères établis dans le Plan officiel actuel et d’élaborer une modification au Plan officiel afin d’exempter le dépôt de neige Innes de la désignation de centre d’utilisation mixte, tel qu’il est proposé dans le présent rapport.

 

2.                  Que le personnel examine les critères de capacité des dépôts de neige basés sur une éventualité qui se produit une fois tous les 50 ans et évalue l’incidence des critères basés sur une éventualité qui se produit une fois tous les 25 ans  et qu’il fasse rapport sur les besoins de la ville en ce qui a trait aux dépôts de neige actuels et prévus dans le contexte de la modélisation pour cette évaluation.

 

 

 

 

Documentation

 

1.      Deputy City Manager, Public Works and Services, report dated 22 March 2007 (ACS2007-PWS-SOP-0002).

 

2.      Extract of Draft Minutes 5, Transportation Committee meeting of April 4, 2007 will be distributed prior to Council.


Report to/Rapport au :

 

Transportation Committee

Comité des transports

 

and Council / et au Conseil

 

22 March 2007 / 22 mars 2007

 

Submitted by/Soumis par :

R.G. Hewitt, Deputy City Manager/Directeur municipal adjoint,

Public Works and Services/Services et Travaux publics 

 

Contact Person/Personne ressource: John Manconi, Director/directeur

Surface Operations/Opérations de surface

(613) 580-2424 x21110, John.Manconi@ottawa.ca

 

Ward 2 (Innes)

Ref N°: ACS2007-PWS-SOP-0002

 

 

SUBJECT:

INNES ROAD SNOW DISPOSAL FACILITY - 2170 Mer Bleue Road

 

 

OBJET :

Dépôt de Neige dU chemin Innes – 2170, chemin Mer bleue

 

 

REPORT RECOMMENDATION

 

That the implementation of the Innes Snow Disposal Facility at 2170 Mer Bleue Road proceed, and that staff undertake the necessary steps of updating the noise study using criteria of the current Official Plan and developing an Official Plan Amendment to exempt the Innes Snow Disposal Facility site from the Mixed Use Centre designation as proposed in this report.

 

 

RECOMMANDATION DU RAPPORT

 

Que la mise en oeuvre du dépôt de neige Innes situé au 2170, chemin Mer Bleue aille de l’avant, et que le personnel prenne les mesures nécessaires en vue de mettre à jour l’étude sur le bruit à l’aide des critères établis dans le Plan officiel actuel et d’élaborer une modification au Plan officiel afin d’exempter le dépôt de neige Innes de la désignation de centre d’utilisation mixte, tel qu’il est proposé dans le présent rapport.

 

 

EXECUTIVE SUMMARY

 

On 23 November 2006, the Ontario Municipal Board (OMB) dismissed the City’s request for the minor variance required to proceed with the construction of a Council-approved snow disposal facility (SDF) at 2170 Mer Bleue Road (Innes SDF).  The OMB decision highlighted seemingly conflicting direction regarding the future use of the site as an SDF and the recent designation of the surrounding area as a Mixed Use Centre.

 

Identification of this site as a snow disposal facility dates back to 1990 and since that time a series of reports and approvals have confirmed the continued intent of the former Region and the City, to proceed with an SDF at this location.  In 2002, a Council-approved plan for city-wide snow disposal adopted the SDF design criteria of the former Region, and confirmed the 2170 Mer Bleue Road site for use as an SDF.  Subsequent to the 2002 report, a number of sites across the City that were identified for long-term use were closed or are now planned to be closed.  These closures have resulted in insufficient snow disposal capacity relative to the design capacity for the Urban Core catchment area and reductions of margins of safety built into the capacities of the East and South areas. 

 

Planning for the East Urban Community proceeded in parallel with the plans for the Innes SDF.  In 2005, a Mixed Use Centre that included the Innes SDF property was identified in the east urban area.  All planning documents recognize the site as a future SDF.  

 

Staff have explored numerous options for east end snow disposal, and present the following three for detailed consideration:

 

Option 1        Retain the site and construct the SDF.  (Staff Recommendation)

Option 2        Abandon the site and look for an alternative site in the area consistent with the 2002 SDF Scoping Report.

Option 3        Abandon the site and haul snow to other facilities in the Urban Core catchment area.

 

After careful and extensive analysis, staff recommend Option 1 – that the proposed SDF proceed at the current location of 2170 Mer Bleue Road for the following reasons:

§      It is the preferred site based on repeated comprehensive analysis dating back to 1990 and approved by Council as recently as October 2002.

§      It is the lowest cost option that meets established design guidelines.

 

§      It is the most environmentally responsible option primarily due to relatively short haul distance, and also due to innovative site layout and design features that mitigate many visual and noise impacts on adjacent land uses.

 

§      It is the lowest risk option since the site is City-owned and given the advanced stage of planning and design, and the availability of secure funding.

 

 

Résumé

 

Le 23 novembre 2006, la Commission des affaires municipales de l'Ontario (CAMO) a rejeté la demande de dérogation mineure présentée par la Ville en vue de procéder à l'aménagement du dépôt de neige (DN), approuvé par le Conseil, au 2170 du chemin Mer-Bleue (DN Innes). La décision de la CAMO faisait ressortir les orientations apparemment conflictuelles entre l'utilisation future de ce terrain comme DN et la récente désignation du secteur avoisinant comme centre d'utilisation mixte.

 

La vocation de ce terrain en tant que dépôt de neige remonte à 1990 et, depuis, une série de rapports et d'approbations ont confirmé l'intention constante de l'ancienne Municipalité régionale et de la Ville d'aménager un DN à cet endroit. En 2002, un plan d'élimination des neiges usées couvrant l'ensemble du territoire de la ville, qui a reçu l'approbation du Conseil, reprenait les critères de conception adoptés par l'ancienne Municipalité régionale et confirmait l'utilisation du 2170, chemin Mer-Bleue comme DN. Dans le sillage du rapport de 2002, plusieurs DN dans différents secteurs de la ville ont été fermés ou sont destinés à l'être. Ces fermetures ont entraîné une insuffisance de la capacité d'élimination des neiges usées par rapport à la capacité prévue pour l'aire desservie du centre-ville et une réduction des marges de sécurité comprises dans le calcul des capacités des secteurs est et sud.

 

La planification de la communauté urbaine de l'est sa été faite parallèlement à l'établissement des plans du DN Innes. En 2005, un centre d'utilisation mixte, englobant le terrain du DN Innes, a été inclus dans le secteur urbain est. Tous les documents de planification urbaine désignent ce terrain comme futur DN.

 

Le personnel municipal a examiné de nombreuses options d'élimination des neiges usées pour le secteur est et propose que les trois suivantes fassent l'objet d'un examen approfondi :

 

Option 1    Retenir l'emplacement prévu pour y aménager le DN (option recommandée par le personnel).

 

Option 2    Renoncer à l'emplacement prévu et chercher dans le secteur un emplacement de rechange répondant aux conclusions du rapport de délimitation des DN de 2002.

 

Option 3    Renoncer à l'emplacement prévu et transporter la neige usée à d'autres DN dans l'aire desservie du centre-ville.

 

Après analyse exhaustive et méticuleuse de la situation, le personnel recommande de retenir l'option 1, c'est-à-dire d'aménager le DN projeté à l'emplacement actuellement prévu du 2170, chemin Mer-Bleue, pour les raisons suivantes :

 

§         Il s'agit de l'emplacement qui a été invariablement retenu dans la succession d'études exhaustives remontant à 1990 et qui encore récemment, en octobre 2002, recevait l'approbation du Conseil.

 

§         Il s'agit de l'option la plus économique parmi celles qui répondent aux lignes directrices de conception qui ont été établies.

 

§         Cette option est la plus écologique, principalement à cause des distances de transport relativement courtes qu'elle suppose, mais aussi en raison de la configuration novatrice de l'emplacement et de ses caractéristiques conceptuelles qui atténuent bon nombre des incidences visuelles et sonores sur les utilisations du sol adjacentes.

 

§         Cette option est celle qui présente le moins de risques. du fait que le terrain appartient à la Ville, que les travaux de planification et de conception sont bien avancés et qu'un financement sûr est disponible.

 

 

BACKGROUND

 

On 23 November 2006, the Ontario Municipal Board (OMB) dismissed the City’s request for the minor variance required to proceed with construction of a Council-approved snow disposal facility (SDF) at 2170 Mer Bleue Road (Innes SDF).  The minor variance requested was to reduce the setback for the proposed snow disposal area from the nearest residential use from 300 metres to 149 metres.   In its decision, the OMB stated, “… the use [of the site as an SDF] is not the issue.  The SDF is clearly permitted in the Zoning By-law and Official Plan.  The issue is whether the setback from the nearest residential use should be reduced from 300 metres to 149 metres.”

 

The Board dismissed the requested setback reduction for two reasons: uncertainty regarding the noise generated by the site, and irregularities with respect to the Official Plan designation and requirements.  With respect to noise, the OMB found that:  “The acoustical analysis did not use noise measurement criterion set out in the Official Plan. The admission that this could mean exceedances in greater number and amount results in a loss of credibility not made up by other means.”  With respect to the Official Plan designation, the OMB found that “although the City has before it a site plan application for 2170 Mer Bleue there is no evidence of the necessary Official Plan amendment arising from a Community Design Plan process.”  The designation of this area as a Mixed Use Centre requires the completion of Community Design Plan prior to development. 

 

A great amount of effort has been placed into what has been effectively a parallel planning process for:

 

1.      The development of a snow disposal facility at 2170 Mer Bleue Road to service the needs of City’s east end, and

2.      The development of an east end Mixed Use Centre containing the property of the proposed SDF.

 

These efforts have resulted in potential ambiguity regarding the future land use of the property, as summarized in the following comment taken from the OMB decision: “it does appear that the new forward thinking of Ottawa as expressed in the Official Plan has caught up with the former connotation of 2170 Mer Bleue as an industrial property.”

 

This report seeks to confirm direction for the property at 2170 Mer Bleue and permit both of these projects to proceed with clear direction.  The report lays out the significant details related to current status of this property and discusses possible alternatives for the SDF.

 

Chronology of Events

 

A chronology of events related to the planning of the SDF and the east urban area Mixed Use Centre is provided in Table 1.  This chronology is intended to provide a general perspective on the level of planning, effort, and complexity associated with both the SDF and the overall planning issues related to the site, and how the current state of conflicting direction has developed.  It is not intended to be an exhaustive account of all events and details that have transpired.  In particular, the considerable public consultation involved in each of these planning exercises is not reflected in the chronology.

 

Table 1.           Chronology of events related to planning of SDF and east urban area Mixed Use Centre.

Date

Item

Snow Disposal Facility

1988

SDF

RMOC hold Open Houses in Cumberland, Orleans as

intent to establish SDFs in area

1990

SDF

Comprehensive RMOC study identifies 2170 Mer Bleue Road

as the recommended property for a permanent SDF site.

1991

SDF

RMOC acquires 2170 Mer Bleue Road property for $1.5 M

1994

SDF

RMOC Strategic Plan for Snow Disposal Inside the

Greenbelt confirmed that, with the Innes SDF site’s potential capacity, no new acquisitions of land for SDFs were required in

the east end

1999

SDF

Site zoned Mx(E4) in the 1999 zoning by-law.  This zone

permits snow disposal.  Prior to this, site was zoned Me –

Heavy Industrial Zone

2002

SDF

SDF Scoping Report commissioned to review SDF needs for amalgamated City.

23-Oct-02

SDF

Council approves SDF Scoping report, that specifically

recommends start of 2170 Mer Bleue SDF project.

Feb-03

SDF

Engineering design work and Class A environmental

assessment commences.  Environmental assessment

enhanced to Class B in August 2005, to increase consultation.

May-03

MUC

Official Plan approved by Council.  East end Mixed Use

Centre is established that includes most of the property at

2170 Mer Bleue Road. A Community Design Plan is

required for each Mixed-Use Centre. No exemption to

designation is provided for the SDF.

14-Jan-04

MUC

Council approves PEC’s Orleans Industrial Park Land

Use and Design Study.  The approved SDF lands are

recognized in the study.

28-Jan-04

SDF

Site Plan By-law amended.  SDFs, previously exempt, are

now subject to Site Plan approval.

May 2004

SDF

Ward Councillor requests business case that weighs current

market value of the Mer Bleue SDF property to costs to

purchase and develop an alternate site.  Draft business case demonstrates financial merit of 2170 Mer Bleue site

compared with numerous other candidate sites in the area. 

09-Jun-04

MUC

June 9, 2004 Noise By-law.  Under Exemptions 21. (1) …

the City …or any of their agents when the emission of

sound is in connection with work undertaken for the

immediate health, safety or welfare of the inhabitants of the

City.    Under Exemption (4).  The provisions of this by-law

shall not apply to snow removal activities for hire

July 2004

SDF

Innes re-zoning group requests land swap of tree lot near

water tower for SDF property.

14-Jan-05

SDF

Planning (Development Approvals) provides PWS with

concept plans showing how Innes SDF site can be developed

in association with surrounding lands

24-Jun-05

SDF

PWS agrees to reduced/modified site concept and to future

sale of buffer lands surrounding SDF for development. Lands identified includes entire frontage along Mer Bleue Road

and majority of frontage along future Vanguard Drive

Oct-05

SDF

Innes SDF Site Plan Control application submitted for

development approval

09-May-06

MUC

Mer Bleue Community Design Plan to PEC.  CDP covers

area to the southeast of the SDF, but not the SDF site itself

or any of the lands to the west of Mer Bleue Road.

10-May 06

MUC

Council approves Environmental Noise Control Guidelines

and Official Plan Amendment to revise policies in section

4.8.8.

13-June-06

SDF

Site plan approval for 2170 Mer Bleue Road sought from PEC.

PEC defers consideration until a Community Visioning Exercise

is completed by the Innes re-zoning group, local councillors

and FoTenn Consultants.

21-Jun-06

SDF

Committee of Adjustment permits City’s application for

minor variance reducing setback to any lot used for

residential purposes from 300m to 149m. Decision is

appealed to OMB.

28-Jun-06

MUC

East Urban Community Design Plan (Phase 1

area) to PEC.  CDP covers area West of Mer Bleue Road,

south of the Hydro corridor, north of the former CP rail line,

east of the NCC Greenbelt, report shows the location of

the future SDF site adjacent to the East Urban Community.

The approved Phase 1 Plan does not include the Mixed Use

Area.  It will be subject to a separate CDP process in the

future.

26-Sep-06

SDF

PEC receives for information the final report of the
Community Visioning Exercise, “Orleans Industrial Park

Community Strategy – a Visioning Exercise”.  The report acknowledges location of the SDF site.       

24-Oct-06

MUC

PEC report.  Community Design Plan for Mer Bleue Mixed

Use Centre for area east of Mer Bleue Road, south of the

Future Rapid Transit Corridor and north of the Blackburn

Hamlet Bypass extension.  Acknowledges the SDF outside

(n/w of) the CDP area and that the SDF has an impact on the future development of the area. 

08-Nov-06

SDF

OMB decision did not approve minor variance, but states

that “the SDF is clearly permitted in the Zoning By-law and Official Plan.”  Grounds for granting the appeal include

out-of-date noise study and absence of CDP required due to designation of site as Mixed Use Centre.

24-Oct-06

MUC

PEC report.  Community Design Plan for Mer Bleue Mixed

Use Centre for area east of Mer Bleue Road, south of the

Future Rapid Transit Corridor and north of the Blackburn

Hamlet Bypass extension.  Acknowledges the SDF

outside (n/w of) the CDP area and that the SDF has an

impact on the future development of the area. 

13-Feb-07

MUC

PEC report Official Plan Amendment –3730, 3738 & 3746

Innes Road to redesignate a section of the lands from

Employment Area to Arterial Main Street.  The woodlot previously proposed for land exchange with SDF property

is re-designated from Employment Area to  Urban Natural Features. 

03-Apr-07

MUC

CSEDC considers report regarding “Emparado Land

Exchange” that proposes exchange of nearby woodlot with

SDF buffer lands.

 

City-Wide SDF Context

 

The removal of snow from city streets, sidewalks, and facilities is a fundamental element of the City’s winter snow and ice control program targeted at keeping the City’s transportation network functioning.  Snow disposal facilities are required to manage snow removed from the City’s transportation network and to allow the snowmelt to be treated prior to being released to the receiving water body.  The process to acquire land, conduct environmental assessments, and design and construct “engineered” snow disposal facilities requires significant time and capital investment. 

 

SDF Master Plan

 

At the time of amalgamation, the City inherited 27 snow disposal sites across the new City.  As part of the amalgamation process in 2002, a “Scoping Analysis of Snow Disposal Facilities” was completed, resulting in a long-term plan for the City’s SDFs.  Staff brought forward a report (ACS2002-TUP-SOP-0004) with the major findings of the Scoping Analysis.  The recommendations adopted by Council in that report were: 

 

1.      That the design guidelines developed by the former Region of Ottawa-Carleton be adopted for the development of future snow disposal facilities.

2.      That the use of the following snow disposal sites be discontinued immediately: Cyrville, Glen Cairn, Maple Grove A (former Kanata facility), Tenth Line and Whelan Park.

3.      That the use of the Greenbank and Moodie snow disposal sites be discontinued once the Strandherd site has been developed as a snow disposal facility.  Similarly, that the use of the Orleans and Trim snow disposal sites be discontinued once the Innes site has been developed as a snow disposal facility.

4.      That detailed design work proceed on the development of the Strandherd and Innes snow disposal facilities.

5.      That a needs assessment study for meeting snow disposal requirements in the downtown core be undertaken to address the status of the Bayview facility.

 

SDF Design Guidelines and Capacity Analysis

 

Design site capacity for snow disposal is calculated by a requirement for a snow disposal facility (SDF) to service its catchment area for a 20-year planning period with capacity for a 1:50 year snow storage event.  

 

In Ottawa, four general snow disposal catchment areas and their design capacities have been identified as follows:

 

§         Urban Core:     3,001,000 m3

§         East Urban:         223,000 m3

§         South Urban:       328,000 m3

§         West Urban:        308,000 m3

 

These catchment areas are shown on Figure 1.  The total city-wide snow disposal design capacity is 3,860,000 m3.  

 



Figure 1. SDF facilities, current facility status, and approximate catchment boundaries.



The 2002 report made recommendations regarding the future status and capacity for each site, and included nine (9) site closures.  Remaining sites were to be “engineered” facilities, requiring design enhancements.  In some cases, site expansion was recommended.  One new site was recommended for the West Urban area.

 

Since approval of the 2002 report, a number of sites have been closed or are under pressure to close that were anticipated to remain open for long-term use.  These include:

§         Bayview SDF.     Committee Report ACS2004-TUP-SOP-0002.

§         Industrial SDF.    Site needed for Transit Garage.

§         Canotek SDF.     Effectively closed due to OMB ruling.

§         Rideau SDF.       Abandoned due to site considerations.

 

The impacts of closures to date plus anticipated future closures on SDF capacity by catchment area can be seen in Table 2. 


Table 2. Long Term SDF Capacity by Catchment Area

 

Snow Disposal Facility

                                                Capacity

Planned,

Long-Term1
(A)

Existing

(B)

After

Closures & Construction
(C)

1 in 50 Year

Design1
(D)

Long-Term Shortfall
(C - D)

Urban Core

3,490,000

2,880,000

2,665,000

3,001,000

-336,000

East Urban

280,000

50,000

225,000

223,000

2,000

South Urban

445,000

115,000

385,000

328,000

57,000

West Urban

342,000

165,000

342,000

308,000

34,000

City-Wide Total

4,557,000

3,210,000

3,617,000

3,860,000

-243,000

Notes to Table 2:

1.      Per 2002 report “Scoping Analysis of Snow Disposal Facilities”.

 

In Table 2, column A shows the anticipated SDF capacity according to the 2002 Council approved plan; column B shows existing capacity; column C shows capacity after anticipated closures and construction of Innes, Strandherd, and a West Urban SDF; column D shows the design capacity according to the 2002 plan; and the last column shows the capacity shortfall or surplus after all anticipated closures and construction relative to the design capacities.  In the 2002 plan, planned capacity exceeded design capacity as a margin of safety.

 

Table 2 shows that the East Urban, South Urban, and West Urban catchment areas will have capacity to meet the design criteria if anticipated facilities (including the Innes SDF) are constructed and anticipated closures are realized.  The table also shows that the Urban Core catchment area has a capacity shortfall of 336,000 m3 relative to the design capacity, and 825,000 m3 relative to the capacity identified in the 2002 plan.

 

In summary, this means that city-wide there will be close to the design capacity if current plans are executed, however, the margin of safety built into the approved 2002 plan no longer exists.

 

In the East Urban catchment area, all sites that existed in 2002 have either already been closed or are anticipated to close in the near future.  Failure to develop the Innes SDF or a similar alternate site will result in a long-term capacity deficit of approximately 223,000 m3 in the east.  Further, there will be ongoing operating pressures to haul snow to the Urban Core and/or South Urban areas. During the design event, emergency disposal measures may be required if there is insufficient excess capacity in those areas.

 

Alternative Technologies and Climate Change

 

Staff regularly conduct reviews of industry practices and emerging technologies to determine if alternate means of snow disposal are viable relative to land disposal.  Alternate means consist primarily of marine disposal, sewer chuting, and mechanical snow melters.  Currently, land disposal remains the preferred means. 

 

Technological improvement have also impacted site capacity.  At the City’s larger sites, high powered snow blowers are utilized to maximize their capacity.

 

Climate change may eventually impact design criteria for snow disposal facilities.  Snow accumulation in the Ottawa area has been shown to be decreasing due to the effects of climate change.  On the surface, this may appear to suggest that design capacities for snow disposal facilities should be decreased.  Staff believe that it is premature to make this determination, primarily for the following two reasons:

1.      Increased volatility in the climate means that frequency of extreme events is increasing.  It is not yet clear what impact trends of lower snow fall combined with more frequent extreme events will have on the return period of the design event (1 in 50 year snowfall).

2.      In recent years, increased freezing rain has resulted in more frequent snow removal as a preventive measure against frozen windrows and associated hazards to users of the transportation network.

 

At the present time, future technological improvements or climate change should not be relied upon to provide relief from established design criteria and associated capacity requirements.

 

Planning Context for Orleans Mixed Use Centre

 

During 2002, when the new Official Plan was being prepared for the newly amalgamated Ottawa, a proposal was put forward by the landowner of the majority of the lands within the Mixed Use Centre as well as some of the lands to the south and north of the area.  This proposal included a request to see the area that is now identified as a Mixed Use Centre incorporated in the Official Plan for mixed use.  The adopted 2003 Official Plan included the future Mixed Use Centre.  One of the key justifications was its proximity to the future Cumberland transitway and Blackburn Hamlet By-pass Extension.  It was recognized at the time that the development of these lands would occur many years in the future and as a result, the preparation of a Community Design Plan (CDP) to outline the specifics of the future plans for the area would be done in the future, closer to the time of development.  

 

 

Official Plan

 

The City Council Approved Official Plan designates the subject site as Mixed Use Centre, with a portion of the north side of the site designated as Employment Area. 

 

The Mixed Use Centre is identified on all four corners of the future Transitway/Mer Bleue Road intersection and is to take advantage of the future rapid transit station proposed immediately south of the Hydro Corridor.  This designation looks to encourage higher density or larger scale employment and residential uses.  The Mixed Use Centre also extends to the south and east of this site.

 

The Official Plan requires that a Community Design Plan be completed for each Mixed-Use Centre.  Development is generally permitted prior to the approval of a Community Design Plan subject to policies of the Official Plan.  However, in the case of the Mixed-Use Centre south of Innes Road and west of Mer Bleue Road (an area containing the proposed SDF), the City will only permit development after the completion of a Community Design Plan and its adoption as a Secondary Plan by amendment to this Plan.

 

A Community Design Plan for the Mixed Use Centre containing the proposed SDF at 2170 Mer Bleue Road will occur at some future date.  The Community Design Plans for the Mer Bleue lands southeast of the site and the East Urban Community Phase 1 lands have been completed, and both recognize the use of 2170 Mer Bleue as a future snow disposal facility.

 

The northwest corner of the subject site and the area immediately to the north of the site is designated as an Employment Area.  Employment Areas are designated to enable a variety of functions, including:

 

§         Noxious industrial uses that impose constraints on other uses locating nearby and require a buffer between these and other uses;

§         Uses that, while not noxious, are incompatible with other uses because of noise, lights and around the clock operation, etc.;

§         Prestigious uses (usually office or combinations of office/clean industrial) with a signature address and a desire to locate among other similar uses.

 

The Official Plan does specifically deal with Snow Disposal Facilities, recognizing that they are not designated on schedules and requiring that they be specifically zoned.  The site in question is specifically zoned for a snow disposal facility and this use has been planned for some time.  The Official Plan does not attempt to direct facilities to any particular designation but rather seeks to establish criteria for developing new sites, and mitigating existing and committed sites.  This site is considered to be one that has been committed to. 

 

The Official Plan requirements for developing snow disposal facilities include: truck traffic routing; respect for the Ministry of Environment Guidelines for appropriate setbacks to residential uses with respect to noise; baseline soil and water quality; contaminants; impact on nearby wells; soil stability; impact of drainage; impact on adjacent watercourses; noise and vibration; aesthetics; seagull control; and air quality.  These concerns are addressed through the Site Plan Control Approval process.

 

Innes SDF Site Design Overview

 

Operating Context

 

The proposed Innes SDF is a seasonal use facility.  Depending on the frequency and severity of snowfall events, the SDF will be operational between 10 and 42 days per year.  The SDF is anticipated to be operational on a 24 hour basis between 9 to 12 days per year.  Some 24 hour operation is required to ensure immediate snow removal from major arterial roadways (Innes Road, St Joseph Blvd, Jeanne D’Arc Blvd, Orleans Blvd).  Overall, the SDF is anticipated to be operational less than 12% of the year on average. Through the storage of snow and responsible handling of meltwater, the SDF serves an essential function for the majority of the year, without extensive active operations.

 

Design Features

 

The design has been developed to reduce or eliminate impacts on nearby sensitive land uses.  The site has been located adjacent to an existing hydro corridor.  In addition, the site’s physical layout, engineering design, and future operating procedures have all been modified to enhance the site’s integration with nearby properties and activities.  Major changes made for this purpose include:

 

§         Reducing the SDF footprint and releasing of most arterial frontage for commercial or other development not sensitive to noise; and

§         Minimizing visual and noise impacts through perimeter design features such as berms, noise attenuation fencing, and naturalization.

 

The initial concept for the Innes SDF was developed through engineering studies, meetings with Planning and Growth Management, the Rideau Valley Conservation Authority, the Ministry of the Environment and public.   It was based on an end dumping operation over the entire useable site in order to limit the pile height to less than 3 metres and a total site capacity limited to 125,000 m3.  

 

In May 2005, a revised site concept for the SDF was developed with significantly reduced footprint, allowing the majority of property fronting Mer Bleue Road and future Vanguard Drive to be freed for commercial development or other uses not sensitive to noise.  The revised final concept plan is shown in Figure 2.  The revised concept for the Innes SDF pushes the site back from Mer Bleue Road and the smaller 7.3 ha site is designed to accommodate the same 125,000m3 of snow.


 


Figure 2.       Proposed site layout and major design features.  SDF footprint has been reduced, freeing frontage along Mer Bleue Road (top) and future Vanguard Drive extension (left) for other uses.  Note the existing hydro corridor along the south (right) side of the proposed SDF.

 

The primary aspects of the initial design (i.e. pump station, forcemain and pond) remain, while the visibility of the snow disposal site from Mer Bleue Road is significantly reduced with the 162 metre setback that will eventually house commercial buildings.  The site would continue to operate at a maximum 3m pile height until its capacity surpasses the 60,000m3 and then the snow would be ramped and compacted with the bulldozer or blower to a maximum height of 5.5 m for the 125,000 m3 capacity.  The 5.5m compacted height could delay the snow melt-off to Mud Creek a further 2 weeks, until the end of April, and this provided a bulldozer is used to accelerate the melt in the springtime.  A Certificate of Approval from MOE will be required for the pumping station and pond.

 

When the site is later serviced by storm sewers (whether from Vanguard Drive or from the development of the southern areas) the design will allow for an operating capacity at 225,000 m3 by using a high-capacity blower to pile the snow higher. 

 

A portion of the perimeter of the site will include a 3-metre high earthen berm and / or a 2-m sound wall, as well as trees and other plantings.   These perimeter design features will provide visual and sound shielding to adjacent areas, as shown in Figure 3.

 

Figure 3.       Proposed site cross section showing berming, sound attenuation and naturalization features.

 

 

Discussion

 

Council direction already exists to proceed with the proposed snow disposal facility at 2170 Mer Bleue Road, as confirmed in the OMB decisions previously discussed.  However, parallel approval of the Mixed Use Designation and significant pressure from local interests suggest that specific clarification from Council regarding the future use of the site as an SDF is warranted.  If the site is not to be used for an SDF, alternatives and impacts must be considered.  These alternatives are described below.

 

Options for East End Snow Disposal

Staff have explored numerous options for east end snow disposal, and present the following three for detailed consideration:

 

Option 1        Retain the site and construct the SDF.  (Staff Recommendation)

Option 2        Abandon the site and look for an alternative site in the area consistent with the 2002 SDF Scoping Report.

Option 3        Abandon the site and haul snow to other facilities in the Urban Core catchment area.

 

Option 1 is well understood since site acquisition and zoning, all preliminary studies, a Class B environmental assessment, public consultation, final design, and construction budget approval have all been completed.  The site is ready for construction pending approval of the site plan by Council and a minor variance by the Committee of Adjustment.

 

Option 2 requires more detailed analysis and consideration since all previously identified alternative sites (from the 1990 study) are no longer available.  A March 2007 review of the City land inventory in the catchment area found no alternate site that would support an SDF, thereby necessitating the acquisition of private property under Option 2.  In moving the SDF from 2170 Mer Bleue, a land acquisition cost would be incurred.  To account for this, and for analysis purposes only, an average land cost for acquisition is estimated for each of four zones (shown in Figure 4) based on sales activity over 2006-07 in the East Urban Community.  10 year net present value (NPV) cost estimates for developing and operating the Innes SDF is compared with alternative sites in each zone are presented in Figure 5.  Dollar amounts in Figure 5 are for comparative purposes and omit the site construction cost that is assumed constant for all sites. It is noted that costing and analysis for Option 2 is conceptual only, since specific alternative sites are not identified.

 

Figure 4.       Zones developed to analyse potential costs associated with Option 2.  Alternative sites (not identified) within each zone are assumed to have the same cost impact.

 

Figure 5.       Option 2 cost analysis summary showing estimated 10 year net present value (NPV) for developing and operating the Innes SDF compared with alternative sites in each zone.  Dollar amounts are for comparative purposes only and do not include costs that are constant across all sites. .

 

Option 3, “abandon the site and haul snow to other facilities in the Urban Core catchment area”, would eliminate all snow disposal facilities from the East Urban Area.  However, excess capacity does not exist in the Urban Core, as shown in Table 2.  Recent closures in the Urban Core catchment include the Bayview SDF and Industrial SDF.  Both Bayview and Industrial SDFs were identified as long-term sites and Council approved in 2002.  As a result of these closures, a capacity deficit of 336,000 m3 exists in the Urban Area.  Without another site in the urban core, diverting the east area’s snow to the urban SDFs would increase the urban SDF capacity shortfall and increase overall risk exposure.

 

In order to evaluate the relative merits of each of the three options, a number of decision criteria were established, including: cost, consistency with guiding documents and previous direction, environmental impact, and risk.  The evaluation of options is summarized in Table 3.

 

 


Table 3. Summary of options analysis for East Urban snow disposal facility

Criteria

Option 1

(2170 Mer Bleue)

Option 2

(Alternative East-End Site)

Option 3

(Haul to Urban Sites)

Cost

n   $1.9M. Lowest cost option meeting design guidelines.

n   Minimum ongoing operating costs over the long term.

n   $6.1M to $10.8M

Cost dependant primarily on site acquisition cost and distance.

n   Not estimated, but likely to be the most costly option by extension of analysis for Option 2.

Consistency

n   Preferred site based on repeated and comprehensive analysis dating back to 1990.

n   Council approval of an SDF at this site in October 2002.

n   Removes SDF from Mixed Use Centre established in May 2003.

n   Removes SDF from Mixed Use Centre established in May 2003.

Environment

n   Shortest haul distance.

n   Site design contains innovative features to mitigate visual and noise impacts on adjacent land use.

n   Potential for long haul distances, increased consumption of fossil fuels, increased generation of greenhouse gas and other emissions.

n   Long haul distances, increased consumption of fossil fuels, increased generation of greenhouse gas and other emissions.

Risk

n   Very low risk since significant work has been completed including zoning, environmental assessment, public consultation, engineering design, and securing of funding.

n   Outstanding items include site plan approval and minor variance for setback distance.

n   High degree of risk since a suitable alternative site not identified. Previously identified alternatives have been developed for other uses.  Alternative sites may not be feasible.

n   Service impacts possible during interim delay.

n   High degree of risk since existing urban sites cannot accommodate snow from East under design conditions.

n   Suitable additional site required but not identified.

n   Service impacts possible during interim delay.


After careful analysis, staff recommend Option 1 – that the proposed SDF proceed at the current location of 2170 Mer Bleue Road for the following reasons:

§      It is the preferred site based on repeated comprehensive analysis dating back to 1990 and approved by Council as recently as October 2002.

§      It is the lowest cost option that meets established design guidelines.

 

§      It is the most environmentally responsible option primarily due to relatively short haul distance, and also due to innovative site layout and design features that mitigate many visual and noise impacts on adjacent land uses.

§      It is the lowest risk option since the site is City-owned, and costs are well defined given the advanced stage of planning and design.

 

Pending Woodlot Land Exchange

 

The City is currently in the late stages of negotiations with a local developer to execute a land exchange of 7.4 hectares of the Innes SDF buffer lands for 10 hectares of a nearby woodlot.  The lands in question are shown on Figure 5.  Details of this exchange are anticipated to be presented to Corporate Services and Economic Development Committee on April 3, 2007.

 


 


Figure 5.       Approximate location and extent of properties involved in proposed property exchange of woodlot (Tree Stand) for SDF buffer lands (2 SDF Parcels).

 

As noted in the background section of this report, the SDF lands involved in this land exchange were identified specifically to improve the integration of the SDF into future development.  Future operational changes to the SDF will accommodate required snow disposal capacity on the reduced footprint.

 

Should the SDF not proceed at 2170 Mer Bleue Road, the site remains a viable property with access to the future expansion of Vanguard Drive.  Nevertheless, land development on this parcel may warrant reconsideration.

 

Next Steps if site is to be retained for use as SDF (Option 1)

 

Should Council recommend that the Innes SDF proceed, a minor variance to the setback distance will still be required.  Since the previous request for a minor variance was initially granted by the Committee of Adjustment, then appealed, and finally reversed by the OMB, the two items that need to be addressed for granting of the minor variance are well understood.  These two items are:

1.      Updating of the noise study using criteria of the current OP, and incorporation of additional noise mitigation measures, if necessary; and

2.      Dealing with the Mixed Use Centre designation of the site.

 

Updating the noise study and additional mitigation measures, if any are required, is anticipated to be a straightforward technical exercise.

 

Official Plan Amendment to Exempt SDF site from Mixed Used Centre Designation

 

The current Mixed Use Centre designation requires that development cannot proceed until completion of a Community Design Plan.  As a Community Design Plan for the area has not yet been initiated, it can be anticipated that a delay of at least a year will occur prior to proceeding further with the SDF.  This delay will introduce interim operating pressures until the site is built. 

 

An Official Plan amendment to exempt the proposed SDF site from the Mixed Use Centre designation would provide relief from the requirement to complete a CDP prior to development of site and minimize further delays and impediments.  Such an action would be consistent with previous direction from Transportation Committee, Planning and Environment Committee, and Council – all of which have previously approved the SDF at this location.  An Official Plan amendment would demonstrate the clear intent of Council with respect to this site and eliminate one of the two reasons identified by the OMB for refusing the minor variance application.

 

Modifications to the Mixed Use Centre designation or the boundaries of the Mixed Use Centre have occurred during the development of CDPs, primarily to rationalize the boundary and provide an appropriate transition of uses.  Both the Mer Bleue and East Urban Community CDPs contain modifications to the designation or its boundaries to reflect the approved CDPs.

 

 

Environmental Impacts

 

The removal and disposal of snow from city streets, city sidewalks, and city facilities is a fundamental element of the City’s Winter Snow & Ice Control Program.  It provides safe and passable transportation and transit networks for all users by reducing the hazards caused by snow and ice accumulation, while being environmentally responsible.

 

The development of snow disposal facilities in catchment areas significantly reduces trucking requirements with the associated reduction in consumption of fossil fuels and the generation of greenhouse gases and other emissions.

 

The development of “engineered” snow disposal facilities to contemporary standards in support of the City’s Winter Snow & Ice Control Program directly benefits the environment by containing melt water and allowing for a settling period prior to release to receiving waters. 

 

Significant planning and engineering details have been incorporated into this site to mitigate and minimize visual and noise impacts on adjacent properties and land uses.

 

 

CONSULTATION

 

Planning and Infrastructure Approvals, Legal Services, Real Property Asset Management, and Infrastructure Services Branch have been consulted in the preparation of this report.

 

Extensive public consultations have occurred throughout the planning and development of the Innes SDF and the east urban Mixed Use Centre.

 

 

FINANCIAL IMPLICATIONS

 

The current site was acquired in 1991 for $1,500,000 along with preliminary scoping studies of approximately $50,000.

 

In respect to the design and construction budget Council has approved authority of $3,950,000 of which  $421,000 has been incurred or committed as a result of the EA processes and design. The balance of funding remaining to complete the project is $3,530,000 in capital accounts 903506 and 903745.

 

 

SUPPORTING DOCUMENTATION

 

None

 

 

DISPOSITION

 

Upon approval of this report, the Public Works and Services Department will proceed with implementation of the recommendations.