Report
to / Rapport au :
Transit
Committee
Comité du transport en commun
and Council / et au Conseil
28
April 2009 / 28 avril 2009
Submitted
by/Soumis par : Nancy Schepers, Deputy City Manager/Directrice municipale
adjointe,
Infrastructure Services and Community Sustainability/Services
d’infrastructure et Viabilité des collectivités
Contact Person / Personne- ressource : Vivi Chi, Manager / Gestionnaire,
City Wide Transportation Planning / Transports urbain, Planning and Growth
Management/Urbanisme et Gestion de la croissance
(613) 580-2424 x21877,
vivi.chi@ottawa.ca
|
Ref N°: ACS2009-ICS-PLA-0069 |
|
SUBJECT: |
|
|
|
|
|
OBJET : |
ÉTUDE DE PLANIFICATION ET D’ÉVALUATION ENVIRONNEMENTALE DU TUNNEL DE
TRANSPORT EN COMMUN AU CENTRE-VILLE D’OTTAWA (DOTT) (RAPPORT
PROVISOIRE) – TRACÉ DU COULOIR ET CHOIX DES STATIONS |
REPORT RECOMMENDATIONS
That Transit Committee recommend Council:
1. Approve the recommended corridor alignment and station options for the Downtown Ottawa Transit Tunnel (DOTT) Planning and Environmental Assessment Study.
2. Direct staff to release a Request for Information (RFI) to property owners within and adjacent to the recommended corridor alignment to solicit ideas on station access, development, design, and other matters with the aim of improving ridership, ridership experience and lowering City costs.
RECOMMANDATIONS DU RAPPORT
Que le Comité des services de transport en
commun recommande au Conseil :
1. d’approuver le tracé du couloir et le choix des
stations recommandés pour l’étude de planification et d’évaluation
environnementale du tunnel du transport en commun au centre-ville d’Ottawa
(DOTT).
2.
incite
le personnel ŕ envoyer une Demande d’information (DI) aux propriétaires
fonciers dans le secteur du tracé du couloir recommandé et ŕ proximité pour
obtenir des idées sur l’accčs ŕ la station, l’aménagement, la conception et
d’autres affaires pour améliorer l’achalandage et l’expérience des passagers,
et pour diminuer les coűts de la Ville.
EXECUTIVE SUMMARY
Assumptions and Analysis:
The purpose of the Downtown Ottawa Transit Planning
and Environmental Assessment Study is to develop a plan for a new electrified
grade separated rapid Light Rail Transit (LRT) facility that follows Council’s
decision to implement Increment 1 of the Transportation Master Plan (TMP). The system must be cost effective, safe,
functional and durable. This report
presents the preferred corridor alignment and station alternatives. The preferred alignment is based on an
evaluation using a set of criteria developed for a grade separated LRT system.
The new grade separated transit facility will see the construction of approximately 12.5 kilometres of new electrified light rail transit, between Tunney's Pasture and Blair Stations. Thirteen LRT stations have been identified along the proposed route. The tunnel will span approximately 3.2 kilometres with four below grade stations serving downtown and the University of Ottawa Campus Station. The tunnel western portal will be located east of LeBreton Station near Brickhill Street and span the core area until it reaches grade at the eastern portal south of Campus Station.
Sections of the system lying east and west of the tunnel will mainly utilize the existing Transitway corridor which will be converted from bus rapid transit (BRT) to LRT technology. Within the 12.5 kilometres of this LRT project, approximately nine kilometres is conversion of the Transitway.
A discussion of the rationale for the preferred alignment is provided in the report and supporting documentation as well as information pertaining to issues arising during consultation with key stakeholders and the public. Approval of the preferred alignment and station options will permit the advancement of functional design which is a requirement of the Environmental Assessment.
Investigations are underway for a site suitable for a maintenance and storage facility and will be presented in the Environmental Assessment Report, brought forward later this year, for consideration by Transit Committee and Council.
Following
Committee and Council approval of the recommendations contained herein, staff
will continue with the Planning and Environmental Assessment Study for
completion in January 2010 and as indicated in this report, undertake a number
of supportive implementation initiatives consistent with Council direction.
Legal/Risk Management Implications:
There are no Legal/Risk Management
impediments to implementing this report's recommendation.
Financial Implications:
Detailed costing
of the fully scoped project will be carried out in the functional design phase
of this study. Costing information will
include an estimate for property acquisition, design, project management,
construction, vehicles, and escalation.
Funding for the DOTT Planning and Environmental Assessment Study is available in the Capital Budget, project number 902135: Rapid Transit EA Studies.
Public Consultation/Input:
This study involved over 150 stakeholder groups, including community organizations, property owners and businesses within the study area, institutions, approval agencies and groups with a special interest in the study. In addition to the Agency, Business and Public Consultation Group meetings (four meetings each), a formal Public Open House and presentation was conducted on 26 February 2009 and was attended by more than 150 people. Individual meetings were also arranged with groups such as the Downtown Coalition, Viking Rideau Corporation, the University of Ottawa, and the NCC. A project website (www.ottawa.ca/tunnel) was established along with a dedicated e-mail address (dott@ottawa.ca) to allow the public to contact the study team directly.
RÉSUMÉ
Hypothčses et analyse :
L’objet de l’étude de
planification et d’évaluation environnementale du transport en commun au
centre-ville d’Ottawa est de tracer le plan d’une nouvelle installation de
transport en commun par train léger (TLR) rapide ŕ passages superposés
électrifiés, conformément ŕ la décision du Conseil de mettre en śuvre
l’Augmentation 1 du Plan directeur des transports (PDT). Le réseau doit
ętre efficace, sécuritaire, fonctionnel et durable. Ce rapport présente le
tracé du couloir préféré et le choix des stations. Le tracé préféré est axé sur
une évaluation faite ŕ l’aide d’un ensemble de critčres élaborés pour un réseau
de TLR ŕ passages superposés.
La nouvelle installation de
transport en commun ŕ passages superposés comprend l’aménagement d’un nouveau
tronçon de transport en commun par train léger électrique sur
12,5 kilomčtres environ entre les stations Blair et du pré Tunney. On a
identifié 13 stations de TLR sur l’itinéraire proposé. Le tunnel s’étendra
sur environ 3,2 kilomčtres et aura quatre stations souterraines au
centre-ville, ainsi que la station Campus ŕ l’Université d’Ottawa. Le portail
est du tunnel sera aménagé ŕ l’ouest de la station LeBreton prčs de la rue
Brickhill et se prolongera au centre-ville jusqu’ŕ ce qu’il revienne ŕ niveau
au portail ouest, au sud de la station Campus.
Les tronçons du réseau ŕ l’est et ŕ
l’ouest du tunnel utiliseront surtout le couloir actuel du Transitway qui sera
converti du transport en commun rapide par autobus (TRA) ŕ la technologie du
TLR. De ce projet de TLR sur 12,5 kilomčtres, environ neuf kilomčtres du
Transitway seront convertis.
Une discussion de la justification
du tracé préféré est ajoutée au rapport et ŕ la documentation de soutien, ainsi
que de l’information sur les enjeux mentionnés pendant la consultation avec les
principaux intervenants et le public. L’approbation du tracé préféré et du
choix des stations permettra de donner suite ŕ la conception fonctionnelle, une
exigence de l’évaluation environnementale.
Des enquętes sont en cours pour
trouver un emplacement convenable ŕ une installation de rangement et
d’entretien, laquelle fera l’objet d’un rapport distinct qui sera préparé ŕ la
considération du Comité des services de transport en commun et du Conseil.
Aprčs
approbation au Comité et au Conseil de la recommandation formulée dans les
présentes, le personnel donnera suite ŕ l’étude de planification et
d’évaluation environnementale pour conclusion en janvier 2010.
Répercussions
juridiques – de la gestion du risque :
Il n’y a pas de contraintes
juridiques – de gestion du risque ŕ l’application de la recommandation de
ce rapport.
Répercussions financičres :
Le financement de l’étude de
planification et d’évaluation environnementale du DOTT est inscrit au budget
d’immobilisations, projet numéro 902135 : Études d’ÉE du transport en
commun.
Consultation publique / commentaires :
L’étude a engagé plus de 150 groupes
d’intervenants, y compris des organismes communautaires, des propriétaires
fonciers et des entreprises du secteur ŕ l’étude, des établissements, des
organismes d’approbation et des groupes ayant un intéręt spécial pour l’étude.
Outre les réunions avec l’organisme, des entreprises et des groupes de consultation
publique (quatre réunions chacun), il y a eu une réunion publique officielle et
une présentation le 26 février 2009, et plus de 150 personnes
étaient présentes. Il y a aussi eu des réunions individuelles avec des groupes,
par exemple, la Coalition du centre-ville, la Société Viking de Rideau,
l’Université d’Ottawa et la CCN. Un site Web du projet (www.ottawa.ca/tunnel) a
été ouvert, y compris une adresse électronique réservée (dott@ottawa.ca) pour permettre au public de
communiquer directement avec l’équipe de l’étude.
BACKGROUND
On
12 September 2007, Council directed staff to initiate an Environmental
Assessment (EA) study for The Downtown Ottawa Transit Tunnel (DOTT). At that time, a number of initiatives were
discussed to show how the City can move forward with a number of transit
related activities to implement a new vision for providing transit service in
the downtown area and reinforcing the goal of a city-wide 30 per cent transit
modal spilt.
The
timing of a downtown tunnel option was discussed in the context of the
Transportation Master Plan and strategic rapid transit network
development. It was acknowledged that
an electrified light rail transit tunnel was an important component in
addressing transit service improvements required now and in the future. Subsequently, the Statement of Work for the
transit tunnel study was approved at a joint Transportation and Transit
Committee meeting on 21 November 2007, which identifies the scope of the
study and the level of effort to undertake the work. The Downtown Ottawa Transit Tunnel (DOTT) Planning and
Environmental Study was initiated in June 2008.
Originally,
the DOTT study area spanned from Bayview Station through the downtown core,
between Wellington Street and Laurier Avenue West, to King Edward Avenue, and
encompassed Lowertown West and the By-ward Market areas, then extended
southerly to include Hurdman Station and the VIA Rail Station. On 19 November 2008 the Joint Transportation
and Transit Committee, during its deliberation of the draft 2008 Transportation
Master Plan, approved a staff recommendation to extend the study limits to
include Tunney’s Pasture Station in the west and Blair Station in the
east. This would align the scope of the
Study with the light rail transit portion of Phase 1, Increment 1, of the
City’s rapid transit network. This
project is a component of the City’s overall plan for transportation service
and infrastructure improvements required to support future growth. The introduction of LRT will also require
the construction of a rail maintenance and vehicle storage facility. City Council approved this recommendation on
26 November 2008.
The DOTT Study
considers a broader area beyond the study limits in order to address environmental
impacts, system operational issues and to coordinate with relevant on-going
studies and projects while identifying tie-ins to future network
connections. In this regard, the DOTT
study ensures cohesion in implementing Council policy as it pertains to land
use regulation, transportation and infrastructure planning, urban design and
smart growth efforts and mitigation of the environmental impacts of the
project. Studies that have been taken
into account include the Interprovincial Transit Strategy, Escarpment Community
Design Plan (CDP), Bayview-Carling CDP, Wellington Street West CDP, Rideau
Street Urban Design Study, Nicholas-Mann Gateway Design Plan, Downtown Ottawa
Urban Design Strategy and Federal Land Use Strategy.
Figure 1- DOTT Study Area
The new transit facility will see the construction of approximately 12.5 kilometres of new electrified light rail transit, between Tunney's Pasture and Blair Stations. Thirteen LRT stations have been identified along the proposed route. Each station will be designed to accommodate 180-metre long platforms (for future six-car trains needed beyond the 2031 planning horizon). The tunnel will span approximately 3.2 kilometres with four stations below grade serving downtown and the University of Ottawa campus station.
East and west of the downtown tunnel the existing Transitway will be converted from bus rapid transit to light rail transit technology. Within the 12.5 kilometres of this LRT project, approximately nine kilometres is conversion of the Transitway. Investigations are underway for a site suitable for a maintenance and storage facility, the findings of which will be the subject of a future report to Committee and Council.
The general alignment and design of the stations that
have been evaluated are described below.
Figure 2 provides a general overview of the stations within the
corridor.
Figure 2- DOTT Alignment
DISCUSSION
The need for the DOTT Study is based on the acknowledgment that delays and
congestion in the downtown area are significant and of great concern when
planning for the redevelopment of the core area and meeting existing and future
transportation needs of the City and adjacent municipalities.
Transit
through downtown accommodates over 10,000 riders during peak hours. Currently, transit service is limited to 180
buses an hour along Albert and Slater Streets during peak times to meet the
travel demand. Effectively, the transit
system has reached its capacity in providing Bus Rapid Transit service through
the downtown to serve surrounding communities.
The system will no longer be able to expand service beyond 2018.
The TMP aims to implement a series of initiatives whereby electrified light rail will:
·
Increase transit ridership and improve transportation
services throughout the region, and in particular, the downtown core area;
· Provide the transportation
infrastructure needed to support the City's projected population and employment
levels for the year 2031.
The
most significant initiative, and the subject of this study, is to:
· Construct a tunnel across downtown
Ottawa;
· Convert the existing Transitway
between Tunney's Pasture and Blair Station from bus to rail technology.
As
approved by Council, light rail transit will follow the established Transitway
route between Tunney’s Pasture Station and Blair Station via a tunnel through
the downtown to replace the existing on-street downtown transit. The need for LRT has been established
through the TMP exercise and refinements for the choice in technology are being
developed for Council’s consideration later this summer.
Objectives and Design Criteria
A set of objectives and design criteria and indicators
were established to
guide the evaluation and development of alternative
alignments and station concepts. The
evaluation objectives include:
· Increase transit ridership and the mobility of residents
· Enhance Ottawa’s urban character and national stature
· Stimulate smart growth principles
· Create rapid transit stations
· Be compatible with adjacent communities
· Maintain or improve natural and physical environments
· Showcase sustainable design best practices
· Manage construction disruption and risk
· Result in wise public investment
The purposes of developing these
objectives and criteria are to:
- Enable a shared understanding by the City, the design team, and
all stakeholders of the project and its expectations;
- Implement planning and design directions of the Plan for Canada’s
Capital, Ontario’s Provincial Policy Statement, and the City’s Official
Plan and Transportation Master Plan Update;
- Form the fundamental planning objectives and basic design
assumptions;
- Provide guidance for designers and others to use when trade-offs
need to be addressed;
- Provide a foundation for the selection of criteria to be used in
the evaluation and assessment of alternative designs; and
- Form the basis for determining detailed design criteria and
indicators.
The Project Team, with feedback from the study’s three
consultation groups and the general public, completed the evaluation of the
preliminary alignments and stations.
The evaluation, criteria, indicators, and results are provided in
Documents 1 and 2, respectively.
Design Segments
To comprehensively undertake this study, the project was divided into 10 design segments, described as follows and illustrated in Figure 3. The preferred design alternative for each segment will be linked to create an overall preferred alignment and design for the entire project.
Figure 3-
DOTT Design Segments
Segment Alignment and Station Configuration
Options
Segment 1: Tunney’s Pasture
Segment 1 includes
the western limits of the preferred LRT alignment which follows the existing
Transitway alignment from Tunney’s Pasture Station to Parkdale Avenue. Tunney’s Pasture Station will serve as the
western terminus for BRT service from the west and southwest until such time
that the LRT system is expanded further in accordance with the TMP. The Station will accommodate bus and rail
transfers for approximately 9,000 passengers/hour during peak operating
times. Tunney’s Pasture is a major
employment node for the federal government (second largest employment centre
outside of the downtown). The
station will be designed to accommodate transfers between LRT and BRT for trips
not destined to Tunney’s Pasture on an interim basis until LRT is extended to
Baseline Station and the Western Transit Corridor is determined. The facility will provide a turn-around for
BRT. There will be a need to have some
transit continuing on Scott Street to facilitate connections to the O-Train and
Gatineau services at Bayview and LeBreton stations. Bus operation on Scott Street will be minimized to mitigate the
impact on adjacent lands and allow the federal campus to proceed with its
development initiatives. A number of operational considerations will be
addressed during the Environmental Assessment phase of the study to coordinate
downtown service, service to Gatineau via the Chaudičre Bridge and transfer to
the North-South LRT.
Two station design
options were evaluated. For both
options, bus facilities will be located on the north side of the existing
Transitway. The Parallel Configuration
ranked highest in the evaluation of alternatives and is recommended because it
provides an efficient way to run BRT in and out of the Transitway west of the
station and it also provides an adequate lay-by area. This configuration also addresses bus service that will remain on
Scott Street to serve local and through service.
Figure 4 –
Tunney’s Pasture Station Configurations
Parallel Configuration Linear
Configuration
The LeBreton – West Portal segment runs from Preston Street to the escarpment and generally follows the Transitway corridor route to Booth Street and then continues easterly toward the escarpment. The LeBreton alignment and station will complement redevelopment of the LeBreton Flats and also continue to serve as a transfer point to Gatineau via Booth Street and the Chaudičre Bridge crossing. This is an important transfer point to employees headed to Place de Portage, Terraces de la Chaudičre and for transit riders entering the city from Gatineau.
The corridor is in an open trench west of Booth Street
and continues below grade towards Brickhill Street where the trench is deep
enough to launch the tunnel-boring machine into the limestone bedrock. The tunnel portal will be situated near this
location. The proposed grade and
gradient of the alignment effectively takes advantage of the existing topography
and minimizes impact on nearby features such as the aqueduct, tailrace and
existing roads. This configuration is
consistent with development plans for the area and provides for the potential
for joint development on the City’s escarpment lands. The corridor will be designed to allow development to proceed
over top of the alignment.
Three station configurations were considered for LeBreton. In all three options, the LRT alignment would be located slightly to the south of the existing Transitway alignment in an open trench starting to the west of Booth Street. This will permit a reconstructed Booth Street to cross over the LRT corridor via a new bridge structure. A centre platform configuration for the LRT station would be provided. The primary difference between the three options developed concerns how bus transit is accommodated at this location.
The Bus/Booth At-Grade Crossing configuration accommodates short-to medium-term bus operations with a temporary bus facility south of the new LRT alignment. This bus roadway would cross Booth Street at grade, much the way it does today. This configuration would permit bus-to-bus transfers at grade with connections to the LRT corridor below Booth Street provided from the new Booth Street bridge spanning the LRT station. This option serves the Gatineau/Ottawa transportation connection and the LRT component and is consistent with plans to serve the future development of the LeBreton area; however, the temporary bus lanes will delay future development south of the aqueduct, and there are some throw-away costs associated with the temporary bus facilities.
The Transit under Booth Street configuration accommodates short-to-medium-term bus operations with a temporary bus facility located within the LRT corridor, at the same level as the LRT platforms and extending under the new Booth Street bridge. This configuration would permit most bus to rail transfers from a common platform. In the long-term, area occupied by the bus roadway could be converted to public space. This option serves the Gatineau/Ottawa transportation connection and the LRT component but is not consistent with plans to serve the future development of the LeBreton area due to additional land requirements. There are significant costs associated with the temporary bus facilities.
The Buses on Booth/Albert configuration accommodates bus operations on the new Booth Street bridge over the LRT Corridor, which will be wide enough to accommodate bus lanes and waiting areas for passengers. The lack of dedicated bus facilities at this location will require that bus service either loop on-street or at an alternative bus terminal location. Bus operations will need to be developed and confirmed as part of the functional design process. Transit users transferring at this location will be well served from either direction with minimal travel time between stations and platforms. This configuration is recommended as it has fewer infrastructure requirements and would allow residential development south of the aqueduct to proceed more quickly. This option also allows for flexibility in the implementation of decisions that will arise from the Interprovincial Transit Strategy.
Figure 6
Bus/Booth At-Grade Crossing Configuration Transit Under Booth Street
Configuration
Buses on Booth/Albert Street Configuration
Segment 4: Downtown
Alternative Alignments
The Downtown Segment includes the area through
the downtown core from the escarpment to King Edward Avenue. A number of alignment options were explored
to construct a tunnel across the downtown core. Alignment options include: two tunnels under one street; one tunnel
under adjacent streets; two stacked tunnels; and a “cross-country” alignment. Alignments were explored under Sparks,
Queen, Albert and Slater Streets.
Tunnels under Wellington Street and Laurier Avenue West were not
considered because of proximity to sensitive federal lands in the parliamentary
precinct and poor geotechnical conditions, respectively. In addition, these corridors are located
toward the edge of the developed areas, rather than being centrally located in
the core for convenience of accessibility.
Figure 7 – The Cross-Country Alignment
Stations and platform configuration
The configuration of the platforms in the downtown tunnel is based on a set of specific objectives and design criteria.
Six
objectives were developed and are listed below:
·
Security and Life Safety
·
Enhance Ottawa’s Urban Character and Express
National Stature
·
Showcase Sustainable Design Best Practices
·
Manage Construction Disruption and Risk
· Result in a Wise Public Investment
· Platform Configuration Alternatives
The
recommended alignment and station configuration is the cross-country route with
centre platform stations that generally follow, from west to east:
·
Under
Albert Street, with the Downtown West station in the Lyon/Bay block,
·
Turning
slightly to the north at Bank Street to cross under Queen Street at O’Connor,
with the Downtown East Station centered on O’Connor, then
·
Continuing
cross-country toward Rideau Street, with a Rideau Station spanning under the
Canal and Rideau Street, from just west of the canal to the Freiman Mall, then
·
Sweeping
to the south under Rideau, Waller and Nicholas to connect to Campus Station.
This
alignment is the most direct and cost efficient route (high-level estimates)
for the tunnel. The alignment can be
constructed easily, and will have low on-going maintenance costs as the
curvature is minimized. It services a
large percentage of the existing and potential development in the downtown, and
is technically the most feasible given geotechnical conditions and construction
considerations.
Segment 5: Laurier – East
Portal – Lees
This segment is characterized by a centre platform configuration at Campus Station that serves the University of Ottawa and a side platform configuration at Lees Station, which is located within the Transitway corridor slightly north of the existing platform. The preferred location at Lees Avenue also presents the potential future connection to the adjacent Mann/Lees development lands. Known site contamination in the vicinity of Lees Station limits expansion at this location, therefore keeping the station within the existing corridor will avoid further remediation costs. This alignment uses the existing Rideau River Bridge to Hurdman Station.
The eastern portal of the tunnel is located in this
segment. The location of the portal was
determined based on a number of factors: minimizing impact on the University
and Nicholas Street; allowing for temporary bus operations around the
construction zone; minimizing disruption to infrastructure in the area; and
maximizing the use of the tunnel boring machine. Three portal locations were considered for Campus Station and are
illustrated in Figure 9 (north of
Campus Station; south of the existing Campus BRT Station; and south of Mann
Avenue).
Based on geotechnical conditions, the portal located
south of Mann Avenue is recommended. An
opportunity to provide a below grade station that will be integrated with
existing and future buildings and pedestrian systems ranks high in desirability
and cost efficiencies. With the portal
located further south, the TBM can be extracted at a construction staging area
and the portal entrance will be completed with typical cut and cover technology
since the tunnel is out of the limestone bedrock condition and into the glacial
till characteristic of Sandy Hill. The
portal at this location also lends itself well to eliminating a portion of the
existing Transitway corridor adjacent to the University, thereby providing
opportunities for landscaping along the university/canal corridor, enhancing
the Capital Entry along Nicholas and providing good separation between Nicholas
and the University campus.
Figure 9
– Campus Station
North Portal Configuration
Figure
10 –Lees Station
Segment 6: Hurdman
The Hurdman segment begins at the Rideau
River, crossing toward Hurdman Station and extends to Riverside Drive. The preferred alignment generally follows
the existing Transitway corridor and is adjacent to National Capital Commission
(NCC) vacant lands (part of a former landfill). The
NCC intends to develop lands to the north of Hurdman Station and therefore an
appropriate access to the site is required.
This will be achieved by extending an elevated LRT alignment to go over
an extended Industrial Avenue, which will serve the development parcel. This elevated alignment will continue to use
the existing Transitway bridge over Riverside Drive as it approaches the Via
Rail Station.
The
alignment must also maintain access to the Southeast Transitway, improve access
for pedestrians and passenger drop-off at Hurdman Station and minimize impacts
on the adjacent residential high-rise development.
Three
configurations were developed for this station, as illustrated in Figure
11. For all three options, the LRT will
be raised onto an embankment and the existing bus layover facility will be
moved to the west on the south side of the bus platform area.
The first
configuration (Horizontal North) places the LRT platforms on a raised
embankment north of the existing station, and reconfigures the bus loop as a
one-sided platform parallel to the LRT, in and arrangement similar to Billings
Bridge Station.
The second
configuration (LRT Over Existing) would place the LRT platform directly over
top of the existing Hurdman bus platform.
While this would minimize transfer distances, it would be the most
disruptive to bus service at this station during construction.
The third
configuration rotated the LRT station slightly to allow for a future rail
connection to the Southeast Transitway.
The geometry of the site makes this configuration impractical in that it
requires more land from the NCC and lessens the development potential of the
property.
The
Horizontal North configuration is recommended.
Figure 11 – Hurdman Station
Segment 7: VIA Rail
Station
This
segment runs from Riverside Drive to Belfast and follows the existing
Transitway corridor with some deviation outside the corridor at the Train
Station. The two configurations considered are illustrated in Figure 12. The Front Door configuration would line the
platform up with the main entrance to the VIA Train Station, but require an
underground connection back to the existing corridor north of Tremblay Road.
The
Diagonal configuration adjusts the track alignment to smooth out the existing
tight curves of the Transitway and provides access from the train station and
development lands to the east and north.
This station will be a side platform arrangement to allow for the
optimal track geometry. This
configuration also presents the potential of a future grade separated
pedestrian crossing of Highway 417 as development progresses north of the
highway. The Diagonal configuration is
recommended.
Figure
12- Via Rail Station
The St.
Laurent segment is basically a conversion of the Transitway to LRT service
between Belfast Road and Michael Street.
Local bus access will continue to be important, as this service will be
focused on the station and efficient transfers from local routes. Local bus service will be accommodated at
the existing upper level bus platforms with the potential for additional
vertical access explored at the eastern end of the new, longer, station
platform. Station options relate to the
appropriate platform layout at the existing lower level. After review of both a Centre Platform and
Side Platform configuration, continuation of the side platform arrangement will
make the best use of the existing facility and contain costs associated with
conversion to LRT.
Figure 13 – St. Laurent Station
St. Laurent Station – Side
Platforms St. Laurent
Station – Centre Platforms
Segment 9: Cyrville
Segment 10: Blair
The Blair segment is the most easterly section of the new LRT corridor and will extend from the Aviation Parkway to Blair Road. It will operate as a terminal station and major transfer point, serving transit users in the eastern part of the city. This station will connect the East Transitway, Cumberland Transitway and local bus service
A centre
platform configuration will best serve the station and will effectively
accommodate transfers from BRT service to LRT as well as terminating
trains. A staging area will be required
for BRT service connections and access to drop-off and parking will be
developed through the functional design stage of this study.
The three
configurations are shown in Figure 15.
The LRT on Upper Level configuration would place the LRT on the existing
Transitway level, with the local bus area to the north being reconfigured. This option has geometric constraints for
extending the line to the east, and the local bus area does not provide
adequate capacity for the volumes of transfers anticipated.
The LRT on
Lower Level configuration would require reconstruction of the Transitway Level
into a larger bus terminal sitting over top of the LRT, constructed just below
the lower local bus area. This
configuration provides adequate space for bus transfers and optimizes the use
of the area.
The LRT
Shifted East configuration locates the LRT platform far enough east to allow
for an access point on the east side of Blair Road. This is more challenging to construct, but would allow for a more
direct connection for local passengers east of Blair Road.
The LRT on
Lower Level configuration is recommended.
LRT on Upper Level Configuration LRT
on Lower Level Configuration
LRT Shifted East Configuration
Maintenance and Storage Facility
Ten potential sites were examined
and are currently being evaluated based on the four evaluation factors
developed for the facility, namely:
·
Site
Characteristics (topography, grade, land use compatibility, expansion capability
and environmental considerations),
·
Facility
Operations (turnaround loops, track redundancy, layout efficiency and municipal
services)
·
System
Operations (connectivity to the line, efficiency and access to freight rail),
and
·
Relative
Costs (capital, operating, maintenance and property ownership and acquisition)
The
facility requires a parcel of approximately 12 hectares to accommodate all
required functions to operate the LRT.
All of the sites require property not under the ownership and control of
the City. Public consultation on this issue will take place once the technical
analysis is complete and results will be reported to Transit Committee and
Council as part of the final Environmental Assessment.
Key Issues Arising
from Consultation
Generally there is strong
public support for this project, however some key issues arose during
consultation. These are:
Surface vs. Tunnel
through the Downtown
Concerns were
expressed regarding the implications of changing from a surface (on-street)
transit system to a grade-separated rapid transit (tunnel) system in the
downtown, such as: security, travel time, wayfinding (particularly for visitors
and tourists). The cost of constructing a new tunnel versus accommodating
LRT on the surface was also seen as an issue considering the current economic
climate.
The DOTT Study
follows Council’s recognition and direction that rapid transit needs to be
separated from private vehicular and commercial traffic, particularly if
long-term transit needs are to be met. An assessment of the downtown
transit network (undertaken as part of the TMP update) examined the feasibility
of surface rapid transit options (both BRT and LRT) and concluded that surface
rapid transit did not meet the City’s long-term needs and that grade-separation
would be required in order to provide a rapid transit system capable of
carrying projected demand in a manner which is fast, reliable and convenient.
2031 forecasts will
require four-car LRT trains operating at approximately two to three‑minute
headways during the peak hour. A four-car LRT train would be
approximately 120 metres in length. This length cannot be
accommodated on downtown surface streets without significant impacts to
property access, loading and on-street parking. Using shorter two-car LRT
trains would require a train every 60 seconds to accommodate projected
demand. Given existing traffic signal cycle lengths in the Albert/Slater
corridor, one train would need to be accommodated every cycle. Any delay
would significantly impact LRT operations.
The tunnel and
stations will be designed to accommodate latest standards with respect to life
safety and security. While every possible eventuality cannot be foreseen,
it is noteworthy that citizens of many other large cities continue to ride
underground rapid transit systems in large numbers.
While underground
stations cannot match surface stations in terms of the time required to reach
platform level, it should be understood that surface transit cannot match the
travel time savings which a grade-separated LRT system will provide over
existing downtown transit. Other benefits include separation from
inclement weather and disruptions caused by traffic congestion on the surface.
The time it takes
to access a tunnel station is generally not seen as a penalty but part of the
travel time required for the trip. The
final Environmental Assessment report will examine ways of reducing tunnel
depth and improving access from street level during the functional design
exercise. For example, reducing walking
distances with construction of two major access points and the potential for
additional internal connections to buildings and street level will improve
direct connections to transit for downtown users, particularly during inclement
weather.
Number of
Stations in the Core Area
There are four
underground stations planned to serve downtown Ottawa: Downtown West,
Downtown East, Rideau and Campus. LeBreton Station, to the west of the
core area will also serve development on the west side of downtown, including
the proposed Escarpment Area development. Comments received during the
consultation process have indicated a desire for either more, or fewer stations
in the downtown Ottawa. Those advocating more stations have typically expressed
concern over the spacing between downtown stations compared to other cities,
the catchment area of each station, and the distance required to access each
station given the potentially deep level of the tunnel. Others advocating
fewer stations for the downtown state vehicle travel time and cost savings as
concerns.
Existing subway
systems in Toronto and Montreal have stations in their downtown spaced at an
average distance of approximately 500 metres.
These stations typically have a single primary access point from the
platform level, with multiple accesses provided to the street from a single
mezzanine level. Between LeBreton and Campus, stations on the DOTT
are spaced 535 metres apart; on average. While this provides a slightly
wider station spacing than that found in Toronto and Montreal, it is noteworthy
that each DOTT station will have at least two major accesses points from the
platform level, providing increased coverage for each station compared to
downtown stations found in Toronto and Montreal. Population and
employment densities in downtown Toronto and Montreal are also significantly
higher than those of downtown Ottawa, with greater potential for increased
future development.
The study examined
pedestrian movements through the downtown area and considered walking distances
to tunnel LRT stations. Using a benchmark of 300 metres and 500 metres
walking distances showed that the majority of the downtown area was within the
catchment area of a station, as measured from the mid-point of the platform
area. Separate access points from the platform level helps lessen the
walking distance and travel time to the station. Walking distances are
consistent with other subway station arrangements and are consistent with the
City’s guideline for walking distances to transit stations.
Overall, the
proposed number of stations serving the downtown area has struck a balance
between optimal station spacing for transit vehicle performance and in-vehicle
travel time and the need to provide access and coverage to the downtown
area. Given the significant cost of constructing underground stations,
provision of additional stations in the downtown is not recommended.
Queen vs. Albert
Street Location for the Downtown East Station
The Downtown
Coalition’s cross-country alternative seeks to move the alignment southerly
under Albert Street before veering at Metcalfe Street towards Rideau
Station. This alternative was examined in detail. The proposed alignment captures slightly
more potential transit users by 2031.
However, the study still recommends the alignment along Queen Street for
the following reasons:
· Less tunnelling due
to a more direct route to the next station;
· Less costly due to
a shorter route and less technically challenging boring strategy;
· Provides an
acceptable walking distance to the station;
· Does not require an
“S” curve to reach Rideau Station;
· Avoids some
technically difficult situations moving under and around the Bell Transfer
Station Building and the World Exchange Plaza;
· Provides a smoother
more comfortable ride through the core;
· Will require less
maintenance on vehicles due to a straighter alignment (wheels).
Rideau Centre
Station
The recommended
tunnel alignment at Rideau Station serves multiple purposes, including
facilitating local transit connections, access to the Byward Market, Rideau
Centre and retail on Rideau Street, the Ottawa Conference Centre and the
National Arts Centre and Confederation Square.
This station
location best suits the LRT alignment from a functional and operational
perspective. Local and regional transit will be well served by the
station as it will act as a hub for riders destined to this area of the
downtown; with the number of above grade transfers and travel time minimized
because of a smooth transition between local and regional traffic as well as
the opportunity to transfer to local routes at other stations along the LRT
network.
Other alternative
alignments and station designs were investigated and evaluated including one
under the Rideau Centre aligned with Daly Street and another aligned with the
existing Mackenzie Station. Both of these alternatives present a
technical challenge because of the geotechnical conditions and the existing
Rideau Centre or Mackenzie King Bridge structures, which are supported on
piles. The TBM would have to pass through an array of piles while
negotiating a grade differential as the curve and rise toward the south
begins. The construction of a station along either Daly or Mackenzie King
would be challenging and costly as access from the station to the surface would
be difficult to achieve. Construction
on either of these alignments increases the risk of creating long-term problems
with settlement of Rideau Centre or Mackenzie Bridge. The Mackenzie King alignment would also be immediately adjacent
to the Department of National Defence Headquarters building which could once
again raise security concerns that were expressed during the North-South LRT
Project.
Viking Rideau
Corporation indicated that the recommended alignment would not be suitable for
the operation and future growth of the shopping complex since primary transit
movements would be focused at the Rideau Street end only, rather than
distributed between Rideau Street and Mackenzie King Bridge as currently exists. Viking Rideau Corporation supports the
Mackenzie King alignment for the LRT.
Downtown Rideau BIA
also expressed a preference for regional and local transit to be in separate
corridors (as is currently), with the new LRT service to be on Mackenzie King
Bridge. The BIA does not support
regional and interprovincial transit services being concentrated in one
corridor due to concerns of further impacts on Rideau Street.
The study
recognizes that bus surface operations (on Rideau Street and on Mackenzie King
Bridge) will need to be reviewed in detail in order to find a solution that
becomes transit service needs, with business/community needs.
Other Issues
Risk Assessment
A risk assessment was conducted on the Downtown Ottawa Transit Tunnel project, an update to the risk assessment of the Council Approved Rapid Transit Network conducted in the fall of 2008. Several risks identified at that time no longer apply, generally due to decisions made with respect to the design options which have increased costs, but reduced the risk of further cost increases. There are a number of risks remaining that may result in cost increases or delays for the DOTT project. The key risks include competition and shortage of skilled professionals due to increased investment in other transit and infrastructure projects, perception the project may not proceed to contract, and delays with needed approvals, particularly with Transport Canada and the construction of downtown stations. Other risks that remain include scope changes around station access and design, inflation and exchange rate fluctuations, and the need to acquire land/property rights.
The estimated costs and designs are still
at a fairly high level. The level of design is still at a conceptual level, and
more certainty will not be available until the preliminary design is completed
this summer. The estimated costs of the project have increased since the
TMP due to design recommendations and risk mitigation, including an extension
of the tunnel length placing the Campus station below grade, and further
review of the site for a maintenance and storage facility. The City has
initiated and will need to continue all the risk mitigation activities
identified. The resolution of the
Transport Canada approval will be initiated shortly.
TMP Investment Strategy
In November of 2008 City Council
directed staff to undertake Phase 1 of the Investment Strategy
for the TMP.
The Investment Strategy identifies costs and revenues that
will be required to fund the entire TMP over the next 22 years. Phase 1 of the strategy required
a review of all of the potential financial tools that may be
available to fund the plan. This review was to consider tools that
currently exist under the Municipal Act such as development
charges, Local Improvement Charges and those that may require new taxing
authority through amendments to the Ottawa Act (e.g. road
tolls).
To carry out this assignment,
staff hired KPMG who have now undertaken a complete review of all
financial tools that have been used in other jurisdictions that
may have application for Ottawa's Transportation Master Plan. The consultant has also provided a preliminary
assessment of the amount of revenue each tool may yield for the City's
TMP. Staff is currently reviewing this
study and a report will be brought back to Committee in June with recommendations
on the analysis.
Preliminary discussions with respect
to the transit station development and land acquisition also took place with
groups such as the Downtown Business Coalition and Viking Rideau in
anticipation of the next phase of the EA study and government funding.
Staff
discussed preliminary engagement principles and possible incentives that may be
deployed to secure the necessary land within the preferred transit corridor and
how transit stations may be jointly developed.
In the absence of full project funding, staff suggested that Memorandums
of Understanding could be entered into with landowners within the corridor and
at station locations that would establish key business principles on how land
would be acquired and stations developed.
As well staff engaged the MMM group
to look at best practices and lessons learned from other LRT projects that
required land and stations to be developed in existing downtown areas. Current practices and strategies to engage
developers in both Canada and the United States were reviewed including
in-depth interviews with the Toronto Transit Commission, TransLink (Vancouver)
and the Chicago Transit Authority.
The MMM review noted that several agencies
in North America such as Viva Transit (York Region), TransLink and the WMATA
(Washington, DC) take a proactive approach to engaging land owners and
developers. In many jurisdictions, it
is recognized that there is a reciprocal relationship with positive benefits
that occur with integrating direct transit access through higher density
development that can in turn reduce vehicular travel, increase ridership,
reduce developer and landowner cost and increase property owner revenues and
most importantly create improved communities through Transit Oriented Design
(TOD).
MMM
noted the importance of early engagement of property owners within the transit
corridor so that relationships can be established and concerns and
opportunities addressed. Examples of
tools that are typically deployed to obtain station access and TOD objectives
include:
·
Use
of joint development agreements or other forms of strategic partnerships;
·
Leasing
of air rights above stations and on other land holdings that allow for
additional development directly connected to the transit system;
·
Reduced
parking requirements that save land owners parking construction and maintenance
costs as a result of providing station connections;
·
Clear
station connections policies that outline the required agreements, connection
fees and capital costs, insurance, design, construction, operation and
maintenance requirements; and
·
Station
designs that allow for multiple connection opportunities that provide for
future connectivity at reduced costs.
MMM
noted that tools such as those mentioned above have been deployed on the new
Canada Line in the Vancouver area, redevelopment and intensification along
Sheppard Avenue in Toronto related to the new Sheppard Line and the continued
redevelopment in the downtown core of the City of Toronto, where direct transit
access is considered a benefit to the overall development project.
Next Steps
MMM has recommended a number of
strategies that the City can deploy related to station development and land
acquisition as the EA process advances and project funding is secured. Examples include releasing a Request for
Information (RFI) to identify willing stakeholders and partners and explore
their ideas in developing transit stations, station access and TOD
developments. Identify and consider the
advanced purchase of strategic properties that will assist the City in
leveraging those assets for transit infrastructure improvements. Explore opportunities for land exchanges,
strategic partnerships or joint ventures with various landowners that address
both the City's and the land owner’s needs.
Create a City of Ottawa Station Connection Policy that addresses issues
such as capital costs, connection fees, liabilities, access rights, maintenance
and related issues to ensure that the requirements for station connections are
clear to all stakeholders. As well
ensure that all stakeholders understand the social, economic and environmental
benefits of connecting to the transit system.
Staff
recommends that Council authorize the release of an RFI to solicit ideas from
property owners in or adjacent to the preferred corridor. As this is simply an RFI, the information
that is provided will not bind Council or the party providing the information. In June staff will bring back a report on how
other strategies identified by MMM such as strategic real estate acquisition
can be used to advance the City's transit objectives.
Status On TMP Procurement
In November of 2008 City Council directed staff to speak to Infrastructure Ontario(IO) about Ottawa’s TMP project. Meetings were held this winter with Senior IO and City staff on this matter and the following summarizes these discussions and the status of the TMP procurement process.
1. Senior IO staff have expressed an interest in undertaking an Alternative Finance Procurement (AFP) and project implementation assignment for Ottawa's TMP project. Components of the TMP project that will be assigned to IO for review are currently under discussion however the LRT, tunnel and the LRT stations have been suggested to go through a preliminary financial analysis. If the conclusions of this analysis are positive, greater cost savings and efficiencies will be realized by procuring the project by way of an AFP vs. a convention procurement method. If they are negative IO has indicated that they will not be the delivery agent for the project as their mandate is to only undertake AFP assignments.
2. To establish whether there will be savings and efficiencies in undertaking an AFP vs. a convention procurement approach, IO's preliminary financial analysis involves undertaking an initial Value for Money (VFM) assessment. This assessment will take approximately 8 weeks to complete once sufficient project information is submitted to Infrastructure Ontario. To start the analysis staff has reviewed IO's terms of reference for the preliminary VFM assessment. Staff have also submitted certain project information to IO which will be further supplemented when the technology forum and functional design stage of the EA process are completed this summer.
- Staff will be reporting back to Council in July with IO's initial analysis and all of the procurement options that were analyzed. Should the preliminary value for money assessment for an AFP procurement demonstrate best value, staff will seek direction from Council to execute a contract with IO for the procurement and project delivery elements. This report will also speak to the project scheduling under an AFP process and key milestones going forward.
ENVIRONMENTAL IMPLICATIONS
The study will examine and evaluate the project’s effects on social, physical and natural environments within the study area. Appropriate mitigation measures will be developed and post mitigation environmental impacts will also be determined.
CITY STRATEGIC DIRECTIONS
The recommendation contained herein aims to support the following Strategic Directions adopted by Council on 11 July 2007:
B3 Attain transit goals (30 per cent modal split) by 2021.
E9 Require walking, transit and cycling oriented communities and employment centres.
F4 Ensure that City infrastructure required for new growth is built or improved as needed to serve the growth.
CONSULTATION
This study involved over 150
stakeholder groups, including community organizations, property owners and
businesses within the study area, institutions, approval agencies and groups
with a special interest in the study.
In addition to the Agency, Business and Public Consultation Group
meetings (four meetings each), a formal Public Open House and presentation was
conducted on 26 February 2009 and was attended by more than 150
people. Individual meetings were also
arranged with groups such as the Downtown Coalition, Viking Rideau Corporation,
the University of Ottawa, and the NCC.
A project website (www.ottawa.ca/tunnel) was established along with a
dedicated e-mail address (dott@ottawa.ca)
to allow the public to contact the study team directly. Consultation efforts will continue as the
study progresses. A summary of
consultations undertaken to date is provided in Document 4.
LEGAL/RISK MANAGEMENT IMPLICATIONS
There are no Legal/Risk Management
impediments to implementing this report's recommendation.
FINANCIAL IMPLICATIONS
Detailed
costing of the fully scoped project will be carried out in the functional
design phase of this study. Costing
information will include an estimate for property acquisition, design, project
management, construction, vehicles, and escalation.
Funding for the DOTT Planning and Environmental Assessment Study is available in the Capital Budget, project number 902135: Rapid Transit EA Studies.
SUPPORTING DOCUMENTATION
Document 1 Draft Evaluation Criteria
Document 2 Evaluation of the Alternative Alignments
Document 3 Station Configuration and Platform Designs
Document 4 Summary of Public Consultation
DISPOSITION
Following
Committee and Council approval of the recommendations contained herein, the
Planning and Growth Management Department will continue with the Planning and Environmental
Assessment Study for completion in January 2010 and release a Request for Information
(RFI) to property owners within and adjacent to the recommended corridor
alignment to solicit ideas on station access, development, design,
and other matters with the aim of improving ridership,
ridership experience and lowering City costs.
DRAFT EVALULATION CRITERIA DOCUMENT 1
Downtown Ottawa Transit Tunnel:
Tunney’s Pasture to Blair via a
Downtown LRT Tunnel
Planning and Environmental
Assessment Study
Evaluation Criteria and Methodology
March, 2009
