Report
to / Rapport au :
Transit
Committee
Comité du transport en commun
and Council / et au Conseil
09
December 2009 / 09 décembre 2010
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-PGM-0214 |
SUBJECT: |
DOWNTOWN
OTTAWA TRANSIT TUNNEL (DOTT) PLANNING AND ENVIRONMENTAL ASSESSMENT STUDY -
RECOMMENDED PLAN |
|
|
OBJET : |
PLANIFICATION ET ÉVALUATION ENVIRONNEMENTALE
DU TUNNEL DE TRANSPORT EN COMMUN DANS LE CENTRE-VILLE D’OTTAWA (TTCCVO) - PLAN RECOMMANDÉ |
That the Transit Committee recommend that Council:
2. Direct staff to initiate a formal, expedited Environmental
Assessment (EA) process based on the approved functional design, and file the
Environmental Project Report with the Ministry of the Environment in accordance
with Ontario EA Regulation 231/08 for transit projects.
3. Direct staff to begin the property acquisition process as
described in this report for subsequent consideration by Committee and Council,
subject to funding approval in the 2010 Budget.
4. Direct staff to initiate the preliminary engineering and the
procurement management process as described in Document 3, subject to funding
approval in the 2010 Budget.
5. Direct staff to undertake an urban design study and a transportation study for the downtown that takes into account pedestrian, cycling facilities and residual transit service for post-DOTT implementation.
RECOMMANDATIONS DU RAPPORT
Que le Comité du transport en commun recommande
au Conseil :
1. D’approuver
la conception fonctionnelle du corridor pour le train léger sur rail (TLR)
entre le pré Tunney et la station Blair, de même que l’installation d’entretien
et de remisage, comme le propose le document no 1.
2. D’enjoindre le personnel
d’amorcer le processus officiel d’évaluation environnementale (EE) d’après la
conception fonctionnelle afin de définir le projet et de déposer le rapport de
projet environnemental auprès du ministère de l’Environnement conformément au
règlement sur l’EE 231/08 de l’Ontario pour les projets de transport en commun.
3. D’enjoindre le personnel
d’amorcer le processus d’acquisition des propriétés conformément au document no 1
et sous réserve de la demande d’un fonds de capital et d’emprunt pour 2010.
4. D’enjoindre le personnel
d’amorcer le processus d’ingénierie préliminaire et de gestion des acquisitions
conformément au document no 3 et à la demande d’un fonds de capital
et d’emprunt pour 2010.
5. D’enjoindre
le personnel d’entreprendre une étude de conception urbaine et une étude du
transport pour le centre-ville qui tiennent compte des piétons, des pistes
cyclables et du service de transport en commun résiduel pour la période suivant
la mise en œuvre du TTCCVO.
Background
The purpose of the Downtown Ottawa Transit Tunnel
(DOTT) 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 November 2008 decision to move forward with Phase 1,
Increment 1, of the Transportation Master Plan (TMP). In May 2009 City Council approved the preferred corridor
alignment and station locations (Report Number ACS2009-ICS-PLA-0069). The preferred alignment was based on an
evaluation using a set of criteria developed for a grade-separated LRT system
and forms an important part of the planning phase of the study.
The substantive recommendation outlined in this report is to approve the recommended plan for the DOTT. The project is approximately 12.5 kilometres of new electrified light rail transit, between Tunney's Pasture and Blair Stations, primarily on the existing Transitway corridor. Thirteen LRT stations have been identified along this route, which includes four underground stations serving downtown and the University of Ottawa Campus Station in a 3.2-kilometre long tunnel. The DOTT’s western portal will be located east of LeBreton Station near Brickhill Street and runs through the downtown core area until it veers south easterly and reaches grade at a portal south of Campus Station. In addition, the recommended plan includes a maintenance and storage facility to support LRT operations in the vicinity of St. Laurent Boulevard, south of the Queensway.
A discussion of the rationale for the recommended plan and summary of additional work undertaken since Council approval of the alignment and station options in May 2009 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 recommended plan will lead to activities related to commencement and completion of the Environmental Assessment (EA). Provided that funding is available, initial steps towards implementation of this project in accordance with an approved EA are also being recommended.
The DOTT
study is the City’s first project to follow the expedited maximum six-month EA
process for transit projects. Ontario
Regulation 231/08 allows proponents to build on past planning decisions to
advance a transit project through an EA.
Major planning issues that were addressed in the Council-approved rapid
transit network as described in the 2008 TMP, and its supporting documents, do
not have to be revisited in the EA – such as project need, corridor development
(surface versus tunnel), technology assessment (buses versus trains). However, there are other detailed,
project-specific planning matters to address subsequent to the approval of the
TMP, and the Province assumes that these details are resolved, resulting in a
recommended solution, before the EA process is initiated. The results of the detailed planning study
for the DOTT project (i.e. the functional design) are described in this report
and the approval of Transit Committee and Council is being sought.
The
functional design constitutes the technical content of the Environmental
Planning Report (EPR). With Council’s
approval of the functional design, staff will initiate the formal EA process to
include final public consultation and the submission of the EPR to the Ministry
of the Environment. Subject to
unforeseen issues, no other report will be forwarded to Council on the
planning/EA component of the DOTT project.
Legal/Risk Management Implications:
There
are no legal/risk management impediments to implementing this report's
recommendations.
Financial Implications:
The capital cost estimate is $2.1B, in 2009 dollars. This includes allowances for property acquisition, design, project management, construction, vehicles, and contingency. The estimate does not include escalation and is subject to refinement as the project progresses through subsequent design phases.
In a memo dated 23 October 2009 to the Mayor and members of Council from the Deputy City Manager and City Treasurer, the affordability of the DOTT project (as well as other rapid transit projects identified in Phase 1 of the TMP) was outlined. It was concluded, in accordance with the City’s Fiscal Framework, that the City has the financial capacity to afford its share of all Phase 1 projects. The affordability model assumes two-thirds funding from senior levels of government.
Public Consultation/Input:
To date, the study has 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 several Agency, Business and Public Consultation Group meetings (up to six meetings each), three formal Public Open Houses and presentations were conducted in February, June and October 2009. Individual meetings were also arranged with groups such as the Downtown Coalition, Viking Rideau Corporation, the University of Ottawa, Canadian Environmental Assessment Agency (CEAA), Public Works and Government Service Canada (PWGSC) and the National Capital Commission (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.
Overall, there is strong public support for this project. Other comments pertain to specific details of the functional design.
Contexte
L’étude de planification et d’évaluation environnementale
du tunnel de transport en commun dans le centre-ville d’Ottawa (TTCCVO) a pour
but de tracer le plan d’une nouvelle installation de transport en commun par
train léger sur rail (TLR) rapide à passages superposés électrifiés,
conformément à la décision de novembre 2008 du Conseil de mettre en œuvre
l’augmentation 1 de la phase 1 du Plan directeur des transports (PDT). En
mai 2009, le Conseil municipal a approuvé le tracé et l’emplacement préférés
des stations et du corridor (rapport numéro ACS2009-ICS-PLA-0069). Le tracé
préféré reposait sur une évaluation faite à l’aide de critères élaborés pour un
réseau de TLR à passages superposés et représente une partie importante de l’étape
de planification de l’étude.
La principale recommandation de ce rapport
consiste à approuver le plan recommandé du TTCCVO. Le projet comprend
l’aménagement d’un nouveau tronçon de 12,5 kilomètres par train léger sur
rail électrifié entre le pré Tunney et la station Blair, en grande partie à
même le corridor du Transitway. On a identifié 13 stations de TLR sur
l’itinéraire proposé, qui comprend quatre stations souterraines pour le
centre-ville et la station Campus de l’Université d’Ottawa le long d’un tunnel
de 3,2 kilomètres. Le portail ouest du TTCCVO sera aménagé à l’est de la
station LeBreton près la rue Brickhill et se prolongera au centre-ville pour
ensuite revenir vers le sud-est jusqu’à un portail situé au sud de la station
Campus. De plus, le plan recommandé comprend une installation d’entretien et de
remisage qui appuie les opérations du TLR près du boulevard Saint-Laurent, au
sud du Queensway.
Une discussion de la justification du plan
recommandé et du résumé des travaux supplémentaires entrepris depuis
l’approbation du tracé et du choix des stations par le Conseil en mai 2009 est
présentée dans le rapport et dans la documentation à l’appui, de même que des
renseignements sur les enjeux mentionnés pendant la consultation auprès des
principaux intervenants et du public. L’approbation du plan recommandé mènera à
la mise en place et à l’achèvement de l’évaluation environnementale (EE). Si
les fonds sont disponibles, on recommandera aussi les premières étapes qui
déboucheront sur la mise en œuvre de ce projet conformément à l’EE approuvée.
L’étude du
TTCCVO est le premier projet de la Ville qui suit le processus accéléré d’EE
d’une durée maximale de six mois pour les projets de transport en commun. Le
Règlement de l’Ontario 231/08 permet aux promoteurs de s’appuyer sur les
décisions de planification antérieures pour faire avancer un projet de
transport en commun jusqu’à l’étape de l’EE. Les principaux enjeux de la
planification abordés à l’égard du réseau de transport en commun rapide
approuvé par le Conseil et décrits dans le PDT de 2008 et dans les documents à
l’appui n’ont pas à être réexaminés dans l’EE – comme le besoin du projet,
le tracé du corridor (en surface ou sous terre), l’évaluation de la technologie
(autobus ou trains). Cependant, après l’approbation du PDT, d’autres questions
détaillées liées à la planification du projet doivent être résolues, et la
province tient pour acquis que ces détails ont été réglés et ont donné lieu à
la recommandation d’une solution avant la mise en œuvre du processus d’EE. Les
résultats de l’étude de planification détaillée du projet TTCCVO (c.-à-d. sa
conception fonctionnelle) sont décrits dans ce rapport, et on demande
l’approbation du Comité des services de transport en commun et du Conseil.
La
conception fonctionnelle représente le contenu technique du rapport de
planification environnementale (RPE). Dès que le Conseil aura approuvé la
conception fonctionnelle, le personnel amorcera le processus officiel d’EE qui
comprend la dernière consultation publique et la présentation du RPE au
ministère de l’Environnement. À moins de problèmes imprévus, aucun autre
rapport ne sera acheminé au Conseil sur la planification/composante EE du
projet TTCCVO.
Répercussions juridiques/sur la
gestion du risque :
Aucun empêchement juridique ni autre problème de
gestion du risque n’interdisent de mettre en œuvre les recommandations de ce
rapport.
Répercussions financières :
Le coût d’investissement est estimé à
2,1 milliards de dollars, en dollars de 2009. Ce montant comprend les
allocations pour l’acquisition des propriétés, la conception, la gestion du
projet, la construction, les véhicules et un fonds de prévoyance. L’estimation
ne comprend pas l’indexation et elle est susceptible d’être corrigée à mesure
que le projet franchira dans les autres étapes de conception.
Dans une
note en date du 23 octobre 2009 au maire et aux membres du Conseil, la
directrice municipale adjointe et la trésorière de la Ville ont souligné
l’abordabilité du projet TTCCVO (de même que d’autres projets de transport en
commun rapide mentionnés à l’étape 1 du PDT). Conformément au Cadre
financier de la Ville, on a conclu que la Ville avait la capacité financière
d’assumer sa part de tous les projets à l’étape 1. Le modèle
d’abordabilité repose sur une hypothèse de financement aux deux tiers de
la part des paliers supérieurs de gouvernement.
Consultation publique / commentaires :
Jusqu’à maintenant, plus de 150 groupes
d’intervenants ont participé à l’étude, notamment des organismes
communautaires, des propriétaires de propriété et des entreprises dans la
région à l’étude, des institutions, des organismes d’approbation et des groupes
manifestant un intérêt particulier dans l’étude. En plus de plusieurs réunions
d’organismes, d’entreprises et de groupes de consultation publique (jusqu’à six
réunions dans chaque cas), trois réunions et présentations officielles
publiques ont eu lieu en février, en juin et en octobre 2009. Des rencontres
individuelles ont aussi eu lieu avec des groupes comme la Coalition du
centre-ville, la Société Viking Rideau, l’Université d’Ottawa, l’Agence
canadienne d’évaluation environnementale (ACEE), Travaux publics et Services
gouvernementaux Canada (TPSGC) et la Commission de la capitale nationale (CCN).
Un site Web du projet (www.ottawa.ca/tunnel) a été créé de même qu’une adresse
électronique (dott@ottawa.ca) pour que le
public puisse communiquer directement avec l’équipe du projet.
Dans l’ensemble, le public appuie fortement ce
projet. Les autres commentaires ont trait aux détails particuliers de la
conception fonctionnelle.
Previous
Approvals and City Initiatives
On
12 September 2007, Council directed staff to initiate a Planning and
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 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), and extended
southerly to include Hurdman Station and the VIA Rail Station. On 26 and 28 November 2008 Council, 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.
The DOTT
study considers environmental impacts, system operational issues and 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. Completed and on-going studies
that have and are being taken into account include the Interprovincial Core Area Rapid Transit Integration
Strategic Planning Study, Ottawa Cycling Plan, Escarpment
Community Design Plan (CDP), Bayview-Carling CDP, Wellington Street West CDP,
Rideau Street Urban Design Study, Nicholas-Mann Gateway Precinct Design Plan,
Downtown Ottawa Urban Design Strategy and, Federal Land Use Strategy, NCC Plan
for Canada’s Capital, Canada’s Capital Core Area Sector Plan, LeBreton Flats
Plan, Booth Street Bridge and LeBreton Station Design Guidelines Sussex/Rideau/Colonel By Landmark Node
Study.
Council approved the Downtown Ottawa Transit Tunnel Planning and Environmental Study (Interim report) – Corridor Alignment and Station Alternatives report on 27 May 2009. A series of recommendations were approved including the recommended alignment and station options for DOTT. Other recommendations directed staff to undertake a number of activities related to the project including release of a Request for Information; a bus operation plan for Albert Street in the vicinity of LeBreton Flats; a conceptual transit plan for surface operations; incorporating principles related to transit service and operations of the Rideau commercial district; and, reporting on issues related to the Transit System during construction of the project. These matters have been addressed, separately reported upon by Transit Services, and incorporated in the planning study as appropriate. Further on, this report addresses options for bus operation during construction of DOTT.
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 metres long platforms (for future train lengths 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. Approximately nine kilometres of the alignment, outside of the tunnel portion of the corridor, account for conversion of the existing Transitway. The introduction of rail transit also requires the construction of a maintenance and vehicle storage facility in the vicinity of the LRT corridor at the eastern end of the system.
The general alignment and design of the stations are
described below. Figure 1 provides a
general overview of the stations within the corridor.
The Rail System Selection Report was approved by Council on 25 November 2009, with the following recommendation:
·
That Transit Committee recommend that Council approve
that the Rail technology for the City’s Rapid Transit Plan be Light Rail
Transit (LRT).
Essentially the decision by Council for light rail will ensure that this and future light rail projects:
· Have less impact on the urban fabric and allows the ability to integrate both non-segregated and segregated systems;
· Provides the necessary capacity for the ridership predictions in the main core;
· Can accommodate low passenger capacity in the extensions outside of the main core;
· Has lower total system capital costs than Light Metro; and,
· Can accommodate Ottawa weather conditions.
The DOTT study is the City’s first project to follow the expedited maximum six-month EA process for transit projects. Ontario Regulation 231/08 came into effect in June 2008 and allows proponents to build upon past planning decisions to advance a transit project through an EA. In other words, with the Council-approved rapid transit network as described in the 2008 TMP and its supporting documents, major issues such as project need, corridor development (including surface versus tunnel), and technology assessment (such as buses versus trains) were thoroughly assessed through that planning exercise and do not have to be revisited in the development of the EA for the DOTT project. The Regulation also dispenses of the need for the study Terms of Reference, once a requirement for transit Individual EAs. This and the ability to refer to past planning decisions save considerable time and effort and allow environment-friendly transit projects to progress more quickly towards implementation than before.
The maximum six-month EA transit process is primarily for public consultation, documentation, and provincial approval of the Environmental Project Report (EPR). Once the EPR is submitted to the Ministry of the Environment, the approval period is 35 days (this is within the six-month timeline). If the Minister does not render a decision by the end of the 35th day, the project is considered approved. Should there be bump-up requests, the scope of those requests is now limited to matters of provincial interest only: natural environment; cultural heritage values or interests; and constitutionally protected aboriginal or treaty rights.
In developing Regulation 231/08, the Province assumes
that the detailed planning effort is completed resulting in a recommended
solution before the EA process is initiated.
The results of the detailed planning study for the DOTT project (i.e.
the functional design) are described in this report and the approval of Transit
Committee and Council is being sought.
It should be noted that the functional design constitutes the technical content to be included in the EPR. With Council’s approval of the functional design, staff will initiate the formal EA process to include final public consultation and the submission of the EPR to the Ministry of the Environment. Subject to unforeseen issues, no other report will be coming back to Council on the planning component of the DOTT project.
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 10000 riders per direction during peak
hours. Currently, transit service is
limited to approximately 180 buses an hour along Albert and Slater Streets
during peak times to meet 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 the DOTT 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
directed 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 Council approved the choice of LRT technology on
25 November 2009 after consideration of this matter in an earlier report.
The Recommended Plan
The Recommended Plan for the DOTT project considers
construction, operational and maintenance issues in preparation of the
design. Since the approval of the LRT
alignment and station options by Council, staff has worked to further define
the alignment and station designs, as well as develop project staging and
costing information. A detailed
description of the Recommended Plan is contained in Document 1. The following summary provides an overview
of the Recommended Plan, and focuses on specific areas where changes are
recommended to the alignment and station options approved by Council in May
2009.
Design Segments
To comprehensively undertake this study, the project was divided into 10 design segments, described as follows and illustrated in Figure 2.
Figure 2-
DOTT Design Segments
Tunney’s Pasture Station will serve as the western
terminus for the DOTT and accommodate transfers from BRT service from the west
and southwest until such time that the LRT system is expanded further to
Baseline Station in accordance with the TMP (subject to a future Planning and
Environmental Assessment Study). The
Station will accommodate bus and rail transfers for approximately 9000
passengers per hour during peak operating times. 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. Integration of the station
with future PWGSC development plans for the Tunney’s Pasture employment node
can be accommodated. Once LRT is
extended to Baseline Station and the BRT transfer facilities are no longer required,
these lands can be re-purposed for development. The planned underground pedestrian connection between the BRT and
LRT platforms would provide for direct access into any building located on this
site.
The recommended
design for Tunney’s Pasture follows the “Parallel” Design Option approved by
Council in May 2009. This option
converts the existing BRT platforms in the Transitway trench to 120 m long LRT
platforms in a side-platform configuration.
Protection for future platform extension (to the east) to allow
180-metre long LRT platforms is accommodated.
A temporary BRT terminal located on the north side of the existing
Transitway corridor would provide turn-around facilities for BRT buses and a
waiting area for passengers. This
facility would be reached via an existing (modified) bus ramp located to the
west of the station. Existing bus stop
facilities along Scott Street would remain to serve local service. Passenger flows between the BRT and LRT
platforms would be accommodated by an underground passageway extending from the
north LRT platform. To enable access to
the south LRT platform, an at-grade crossing of the tracks would be
permitted. This crossing would be
beyond the normal operating area of the LRT. Two storage tracks (120 metres
long) would be provided west of the LRT platforms to accommodate out of service
trains. Cross-over tracks would be
located to the east of the station to allow trains to be reverse direction at
this terminus station. An enclosed
platform canopy would cover the full length of the LRT platforms to protect
passengers from inclement weather and reduce on-going winter maintenance costs
(see Document 1 for more details). The
design of Tunney’s Pasture Station considers and seeks to accommodate the
Tunney’s Pasture master plan for redevelopment and future EAs such as the
Western LRT Corridor EA as described in the TMP.
Figure 3 – Tunney’s
Pasture Station
Bayview Station will be a transfer point between the
DOTT and the existing O-Train and a future expanded and electrified North-South
LRT. Additionally, the design must
consider the potential for interprovincial transit service via the Prince of
Wales Bridge. As the station site is
located adjacent to the Bayview and Somerset Area redevelopment lands,
potential integration of the station design into future development is
important. The alignment and new LRT
station design therefore seeks to maximize the development potential for lands
adjacent to the station that are in both public and private ownership. A concept plan for the City’s Bayview site
and the Bayview-Carling Community Development Plan have been considered in the
preparation of the recommended design to assure consistency with these
plans. Provision for a planned off-road
multi-use pathway to be located along the west side of the existing O-Train
corridor has also been considered in the design of Bayview Station.
LeBreton
Station will serve as a transfer point for OC Transpo bus service to/from
Gatineau. The station is located within
the NCC LeBreton Flats development lands and the LRT alignment through this
area follows the previous rapid transit alignment agreed to between the City
and NCC as part of the previous North-South LRT project. The station can be directly integrated into
future development on NCC lands and will also support development on the City’s
adjacent Escarpment Area development lands.
The LRT alignment east of LeBreton Station has been designed to maximize
the development potential of these lands by curving north under the former
Wellington Street right-of-way before entering the tunnel west of Bronson
Avenue.
The recommended design for LeBreton Station follows the approved “Buses on Booth/Albert” design option. The configuration provides for a reconstructed Booth Street bridge spanning the existing aqueduct and the new LRT alignment above the station, which will have 120 metres LRT platforms in a centre-platform configuration, expandable to 180 metres long to accommodate six-car trains in the future. One station entrance located on each side of the new Booth Street bridge structure will be provided, with escalators, elevators and stairs giving access to the LRT platforms. Local bus platforms on Booth Street for northbound and southbound buses would be located on the upper level of the station. To accommodate bus operations at the Albert/Booth intersection, a widening to accommodate double left-turn lanes in the eastbound direction and a dedicated right-turn lane in the westbound direction is provided. All other lanes, and permitted turning movements, remain unchanged.
Figure 5: LeBreton
Downtown Transit Tunnel
Between LeBreton
and Mann Avenue, a tunnel will be constructed to replace the current on-street
bus lanes. This will separate rapid
transit from surface disruptions and provides capacity for future demand,
providing fast, efficient and reliable rapid transit through the downtown.
The tunnel through downtown Ottawa follows the approved “cross-country” alignment and includes the following major elements:
o Tunnel Boring Machine (TBM) launch area will be an open cut between LeBreton Station and Bronson Avenue (for the duration of construction only)
o A standard poured-in-place concrete structure will be built in this area once TBM work is complete, to reinstate existing local roads and accommodate future development
o Downtown West
o Downtown East
o Rideau
o Campus
Figure 6 – Downtown Overview
The rail corridor and configuration of the platforms in the downtown tunnel is based on the most efficient design to traverse the core. A centre platform, with an east and west bound LRT track on either side can be effectively and economically constructed as the tunnel boring machine (TBM) works its way through the limestone bedrock under the downtown area. The centre platform avoids duplication of stairways, escalators and elevators, thereby saving costs. This configuration also minimizes entrance and wayfinding requirements associated with other platform types. Supporting infrastructure and equipment needs are minimized and the platform creates a safer environment since there is a higher likelihood of multiple passengers at any given time and it is easier to secure the area in case of an emergency.
The
tunnel’s “cross-country” alignment is as follows:
·
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 between Bank Street and O’Connor; then
·
Continuing
cross-country toward Rideau Street, with a Rideau Station spanning under the
Canal and Rideau Street; then
·
Sweeping
to the south under Rideau, Waller and Nicholas to connect to Campus Station;
·
The
tunnel continues toward the portal located south of Mann Avenue and north of
Lees Station.
This
alignment is the most direct and cost efficient route for the tunnel. The alignment can be constructed easily, and
will have low on-going maintenance costs as the curvature of the track is
optimized. 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.
Four underground stations have been designed:
·
Downtown West Station is proposed to be located under Albert
Street, east of Bay Street, allowing integration with future Central Public
Library building and serves existing development in west end of downtown. An entrance into Place de Ville or
Constitution Square is also proposed.
·
The
recommended design follows the approved “Centre Platform” design alternative,
and incorporates:
o 180-metre long centre platform, to
accommodate four-car trains initially and six-car trains in the future;
o Two access points from ground level:
§
South
side of Albert between Bay and Lyon (integrated into future Central Public
Library site);
§
North
side of Albert between Lyon and Kent (integrated into Place de Ville office
complex, or within public right-of-way at existing Kent Transitway station);
o Elevators, escalators and stairs
will be provided at each access point;
o An underground connection to the
Constitution Square office complex or the proposed development at the northwest
corner of Albert and Lyon (existing surface parking lot) could be constructed
in the future, by others;
o Underground connections to other
adjacent residential, office and retail development sites could also be
provided by others.
Figure 7 – Downtown West Station
·
Downtown East Station is proposed to be located north of
Albert Street, between Bank Street and O'Connor Street, to provide connections
to local bus services on Bank Street and serves existing development in central
and east parts of downtown.
·
The
recommended design follows the approved “Centre Platform” design alternative,
and incorporates:
o 180-metre long centre platform, to
accommodate four-car trains initially and six-car trains in the future;
o Two access points from ground level:
§
North
side of Albert Street, east of Bank Street (integrated into adjacent
development or within the public right-of-way at the existing Bank Transitway
station);
§
South
side of Queen Street at O'Connor Street (integrated into adjacent development
or within the public right-of-way);
o Elevators, escalators and stairs
will be provided at each access point;
o An underground connection to the
World Exchange office complex, Sparks Street and other adjacent developments
could be constructed by others in the future.
Figure 8 – Downtown
East Station
·
Rideau Station is proposed to be located south of
Wellington Street, between Confederation Square and Sussex Drive and has been
designed to provide connections to both the west and east sides of Rideau
Canal. The design allows for potential
integration with the Government Conference Centre and the National Capital
Commission commemorative design initiative for the Rideau/Sussex
intersection. Connections for local (OC
Transpo) and regional (STO) buses are also provided.
·
The
recommended design follows the approved “Centre Platform” design alternative,
and incorporates:
o 180-metre long centre platform, to
accommodate four-car trains initially and six-car trains in the future;
o Two access points from ground level:
§
East
side of the Plaza Bridge (west of the canal and north of the National Arts
Centre);
§
East
of Sussex Drive (integrated into the Rideau Centre and The Bay buildings);
o Elevators, escalators and stairs
will be provided at each access point;
o A potential access point along the
east side of the Government Conference Centre (former Union Station) building
could be constructed by others in the future.
Figure 9 – Rideau Station.
·
Campus Station is proposed to be located
approximately where the existing Campus Station sits today, and will provide
connections to the University of Ottawa, Sandy Hill and Golden Triangle (via
the Corktown Footbridge). The station
alignment has changed since the May 2009 report. The station has been moved to the west side of Nicholas to
improve constructability and reduce the impact that construction will have on
local traffic and Transitway bus service (refer to Document 1). The NCC is currently reviewing this new
alignment and further consultation with the Commission is required during the
implementation/approval process.
·
The
recommended design generally follows the approved “South Portal, Underground
Station” design alternative, and incorporates:
o 180-metre long centre platform, to
accommodate four-car trains initially and six-car trains in the future;
o Two access points from ground level:
§
North
end of the station, adjacent to Vanier Hall;
§
At the
existing pedestrian underpass of Nicholas Street;
o Elevators, escalators and stairs
will be provided at each access point;
o A potential underground connection
into the new Vanier Hall building could be constructed in the future, by
others.
Figure 10 – Campus Station
This
report recommends that staff be directed to undertake an urban design study and
a transportation study for the downtown for post DOTT implementation. Due to the re-purposing of Albert and Slater
Streets and the impact of reduced bus traffic through the core area, it is
appropriate that these studies be undertaken to determine the aesthetics and
operational aspects of downtown streets, the ability to accommodate cycling
lanes and improve pedestrian circulation and safety. Similarly, the streetscape component of the core area should be
examined in the context of new opportunities due to the changes that will occur
in traffic patterns and the geometric alignment of streets, particularly Albert
and Slater Streets.
Lees Station
Lees
Station serves adjacent residential development to the south and east of the
station area, as well as the southern part of the Sandy Hill community. The station has the potential to be
integrated into redevelopment of adjacent lands as envisaged in the
Nicholas-Mann Gateway Precinct Design Plan, and also future redevelopment of
University of Ottawa lands to the south.
An important existing pedestrian link between Lees Avenue and the main
University of Ottawa campus will also be maintained.
Following
the approved design option for this segment of the alignment, Lees Station will
remain in its current location and generation configuration, with upgrades to
existing station facilities incorporated as part of conversion to LRT. This includes provision of 120-metre long
LRT platforms, with protection allowed for future extension to provide
180-metre long platforms. The existing
platform canopies will be removed and replaced with a new fully enclosed
platform canopy spanning over the LRT tracks.
Due to the lower use nature of this station, the platform canopy may not
extend for the full length of the LRT platforms. Existing station access points from Lees Avenue will be
maintained.
Figure 11 – Lees Station
Hurdman Station
Hurdman Station will be a major transfer point between
the DOTT and the existing Southeast Transitway as well as local bus
services. There is a significant
opportunity to integrate the station with future development lands to the north
owned by the NCC, with access provided to these lands via an extension of
Industrial Drive, passing under the DOTT corridor to the east of the
station. Important pedestrian and
cycling linkages around the station area will be maintained to provide
connections to/from and through the station area.
The recommended design for Hurdman
Station follows the approved “Horizontal Transfer – Further North” design
option. This will allow continued bus
operation to continue to serve the existing station platforms through most of
the construction period. This option 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 an arrangement similar to
Billings Bridge Station. Underpass
structures will provide access from the BRT platforms to the raised LRT
platforms, and also provide through connections to the development lands and
pathways north of the station. 120-metre LRT platforms in a centre-platform configuration,
expandable to 180-metre long LRT platforms to accommodate six-car trains in the
future will be provided. A pocket track
will be provided to the east of the station to provide operational flexibility
for LRT service. After construction,
the existing centre-island bus platform will be demolished, with the space
converted to provide bus lay-up and turn-around facilities. The existing bus lay-up space to the east of
the station could be re-purposed for other uses, such as an enhanced drop-off
facility.
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 the elevated LRT alignment further
east, to pass over an extended Industrial Avenue, which will serve the
development parcel in the future. This
elevated alignment will meet the existing Transitway alignment and grade east
of Hurdman Station and pass over Riverside Drive via the existing Transitway
overpass.
Figure 12 – Hurdman Station
Train
Station
Train Station provides important connections to
intercity (VIA) passenger rail service and to potential commuter rail
service. Access to adjacent employment
lands to the east is also provided, and potential integration with a planned
Queensway pedestrian overpass can be provided, allowing for access to
development on the north side of the Queensway (Baseball Stadium, Overbrook
community). Existing pedestrian and
cycling connections to the east and west would be maintained.
The recommended design for Train Station follows the approved “Diagonal” design option. This option eliminates the existing sharp curves east of the station, which are not suitable for LRT operation and straightens the alignment in front of the station. The existing BRT platforms, Tremblay Road and east station driveway overpass structures would be demolished, with new LRT platforms and overpass structures built along the new alignment. The existing west station driveway can be maintained, which will allow access into the VIA rail station to be maintained during construction. 120-metre LRT platforms in a side-platform configuration, expandable to 180-metre long LRT platforms to accommodate six-car trains in the future would be provided. One access point located approximately at the mid-point of the LRT platforms would be provided, linking the LRT station with the VIA rail station and Tremblay Road via a covered walkway. It is proposed that the existing pedestrian bridge spanning the Transitway be relocated and re-used to span the LRT tracks at the access point. Others could construct a future connection from the east end of the LRT platforms. Elevators, escalators and stairs would provide access between ground level and the LRT platforms, located within the existing “bowl” in front of the VIA rail station.
Figure 13 - Train
St. Laurent Station
St. Laurent Station serves an established major retail development (St. Laurent Shopping Centre) and provides for transfers to local bus services via an upper level bus terminal. The adjacent shopping centre has submitted plans for a major expansion, which will further support transit ridership. Additionally, PWGSC is preparing development plans for a major employment node located on lands adjacent to the station site, south of The Queensway. There is the potential for a direct pedestrian connection from these lands into St. Laurent Station.
Following the approved design option for this segment of the alignment, St. Laurent Station will remain in its current location and general configuration, with upgrades to existing station facilities incorporated as part of conversion to LRT. This includes provision of 120-metre long LRT platforms on the existing lower level of the station, with protection allowed for future extension to provide 180-metre long platforms. The upper level bus platforms would remain largely unchanged and continue to serve local bus services providing connections to the LRT line. Existing station access points will be maintained, with the potential for a connection to future development lands south of the Queensway (to be built by others).
Figure 14
– St. Laurent Station
Cyrville Station
Following
the approved design option for this segment of the alignment, Cyrville Station
will remain in its current location and generation configuration, with upgrades
to existing station facilities incorporated as part of conversion to LRT. This includes provision of 120-metre long
LRT platforms, with protection allowed for future extension to provide
180-metre long platforms. The existing
platform canopies will be removed and replaced with a new fully enclosed
platform canopy spanning over the LRT tracks.
Due to the lower use nature of this station, the platform canopy may not
extend for the full length of the LRT platforms. Existing station access points from Cyrville Road and an office
development to the west will be maintained.
Blair Station
Blair Station will serve as the eastern terminus of the DOTT and accommodate transfers from BRT service from the east (existing East Transitway and future Cumberland Transitway) and local bus services. The station also serves a major retail development (Gloucester Centre) located immediately adjacent to the station site, as well as office developments to the east and south (linked via a pedestrian bridge over OR 174).
The
recommended design for Blair Station follows the approved “LRT on Lower Level”
design option. This option converts the
existing local bus platforms on the lower level of the station to 180-metre
long LRT platforms, in a centre platform configuration, to accommodate four-car
trains initially and six-car trains in the future. An expanded upper level bus platform in a centre-island
configuration would accommodate BRT and local bus service, with vertical
transfers achieved directly from the upper (bus) to lower (LRT) levels. The existing pedestrian overpass, which
spans over the station and connects the Gloucester Centre to development lands
on the south side of OR 174, would be rehabilitated and re-used. Existing station access points into the
station would be maintained. A
cross-over track would be provided to the west of the LRT platforms to allow
trains to reverse direction. A pocket
track, also to the west of the station would be provided to store out of
service trains and provide operational flexibility.
Figure 16 – Blair Station
Maintenance and Storage Facility
The LRT Maintenance and Storage Facility is included within the scope of
DOTT Planning and Environmental Assessment Study and is an integral part of the
project, as it will:
Ten
potential sites were examined 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).
Evaluation of the 10 candidate sites was presented at DOTT Public Open
House #2 on 24 June 2009. Based on the
evaluation, three sites were short-listed for additional evaluation:
·
Bayview;
·
Hurdman North;
·
St. Laurent.
Based on feedback from the Consultation Groups and the public,
additional evaluation was undertaken, focussing on the land use and development
impacts of the three sites. While these
factors had been considered in the initial evaluation, the number of technical
considerations overshadowed these impacts.
As the three short-listed sites were all capable of supporting the
facility from a technical perspective, the focus on land use and development
was deemed the primary differentiator.
As a result of this additional analysis the St. Laurent site is recommended
as the preferred site based primarily on:
·
Land use;
·
Ownership;
·
Expansion capability;
·
Access and connectivity to Transitway.
Document 1 describes the location and the recommended plan for the
Maintenance and Storage Facility. This
facility needs to be constructed and ready to accept vehicles, in advance of
the revenue service, for the commissioning of the line.
Geotechnical Analysis
A geotechnical study was carried out in support of the planning and functional design phase of this project. Published information and maps from the Geological Service of Canada and the Ontario Geological Service, as well as subsurface information from the geotechnical consultant’s (Golder Associates) files, were used as the basis for that geotechnical study.
The results of the study indicate that most of the route downtown is underlain by shallow bedrock, likely at depths ranging from about two metres to five metres below existing ground surface between the west portal and Rideau Centre area. In the vicinity of the Rideau Centre, a valley in the rock is known to exist, where the surface of the bedrock is indicated to be locally much deeper. South of Laurier Avenue, the bedrock becomes progressively deeper, extending to depths ranging from about five metres to possibly 25 metres below existing ground surface, and changes from limestone to shale of the Carlsbad formation. The subsurface conditions from about Waller Street to Mann Avenue likely consist of sensitive silty clay overlying deposits of glacial till and sand, and south of Mann Avenue the subsurface conditions are indicated to consist of significant deposits of sands underlain by glacial till. Both of these areas will have substantial groundwater issues. In addition, the published information indicates that at least three faults cross the tunnel alignment in the downtown core. Additional faults and associated tributary faults likely also lie within the study area. These faults are now considered inactive but create important features likely to impact the overall bedrock quality and hydrogeological regime.
A sample of rock from a local quarry was sent to a laboratory for testing to confirm some of the parameters used for design. While generally useful, this sample only provided guidance in setting parameters.
The
results of the geotechnical study have been used to inform the functional
design of the tunnel and downtown stations.
Based on the results of preliminary rock modelling using the data
available, the vertical alignment of the tunnel has been lowered to provide
additional clearance from structures above.
The position of Rideau Station has also been shifted further to the west
in order to be located outside of the rock valley area.
In order
to advance the design of the tunnel and underground stations, additional
analysis of rock conditions is required to support the next phase of project
design. This work would include
drilling boreholes and undertaking more detailed testing and analysis of
geotechnical and hydro-geological conditions.
Construction
Staging
While the final construction staging plan for the DOTT project will be
the responsibility of the implementation team and the contractor selected to
construct the system, the DOTT functional design process did look at the general
objectives of the staging and opportunities to provide logical break points
between sections and phases of work.
Estimated durations were also compiled to allow for schematic planning
of the implementation process. At the
most general level, the project will be staged to:
·
Minimize construction cost;
·
Minimize traffic and bus service disruption;
·
Optimize cash flow; and,
·
Maximize contractor efficiency.
The staging will also follow these general principles:
·
The tunnel and underground stations will likely start first, as these
elements will take the longest to construct;
·
The Maintenance and Storage Facility must be completed midway through
the construction of the project to allow for delivery of vehicles and vehicle
testing;
·
Major work at Bayview, Hurdman and Blair is off the existing Transitway
and can be done with minimal disruption to bus service;
·
Conversion of the Transitway will be done in logical segments to
maintain bus service on the Transitway for as long as possible;
·
Once construction starts in an area, bus service will be rerouted, and
will not return; and,
·
After construction is complete there will be a period for station
fit-out, testing and commissioning before revenue service starts.
In addition to the general
principles, the following assumptions were made to determine construction
staging opportunities, estimate duration and estimate capital cost for the
tunnelled portion of the project:
·
The twin tunnels will be constructed using a Tunnel Boring Machine
(TBM), likely an Earth Pressure Balance machine, which will allow the tunnel
work to proceed from end to end through the varying ground conditions that are
known to exist;
·
The tunnels will be staged from LeBreton Flats to take advantage of
vacant land;
·
The depth of the tunnel (approximately 30 to 35 metres below grade) has
been planned to avoid impacts to building foundations, utilities and the Rideau
Canal;
·
Cut and cover construction will generally be limited to the areas around
the west and east tunnel portals;
·
There will be some visible cut and cover construction work at each
station to construct the entrances and vent shafts (some locations which are
not under the travel lanes, or which can be closed off may be constructed using
open excavations, where local conditions permit);
·
Downtown stations will be mined out from within the tunnels, and all of
the excavated material will be hauled out to the LeBreton work site; and,
·
Campus Station will be constructed using the traditional open excavation
method.
The bulk of the visible activity will be at the TBM launch site, which
will be at the east end of the LeBreton Flats, although there will be
substantial activity at Campus Station and the East Portal (south of Mann
Avenue). Appropriate mitigation measures
to reduce noise level impacts during construction will be considered during the
EA phase of the study, with detailed plans developed by the contractor
responsible for actually constructing the tunnel. The City will have input into specific measures adopted (e.g.
working hours, truck routes, dust control).
The following assumptions were
made to determine construction staging opportunities, estimate duration and
estimate capital cost for the conversion of Transitway Stations:
·
Platforms will be widened with the tracks being placed in centre by-pass
lanes;
·
Existing canopies and shelters will be removed;
·
Elevators will be upgraded; and,
·
New canopies will be installed over the platforms and track for the full
length of the station (except at a few low-use stations).
The stations at Bayview, LeBreton, Hurdman, Train and Blair require
extensive modifications to accommodate conversion and must be largely rebuilt
to accommodate the new LRT system and the transfer of passengers to bus and
Transitway services.
The following assumptions were made to determine construction staging
opportunities, estimate duration and estimate capital cost for the conversion
of the Transitway running segments (between the stations):
·
In open areas, ballast and track will be installed on top of the
existing roadway;
·
Track through the stations will be directly fixed to a concrete slab for
ease of maintenance;
·
Minor changes to drainage will be required; and,
·
Some structures will require modifications to increase vertical
clearances.
An operating plan for the line was required to develop the functional
plan. The following assumptions were
used to develop the physical requirements for rail operations:
·
Track, power and systems installation at the Maintenance and Storage
Facility will be completed before the vehicles arrive;
·
Testing in the yard and sections of the line close to the Maintenance
and Storage;
·
Facility construction will begin as soon as possible;
·
Each section of track that is completed will require a testing and
commissioning period;
·
Crossovers will be provided at the terminus stations and at key points
along the line to allow trains to reverse direction;
·
Pocket tracks will be provided at Hurdman and Blair Stations;
·
Two storage tracks will be provided at Tunney's Pasture to accommodate
out of service or disabled trains; and
·
The connection to the Maintenance and Storage facility will allow trains
to enter/leave the line from both directions.
High-level project scheduling indicates that it could take up to seven
years for construction and commissioning of the LRT line. This duration estimate is subject to
refinement through design and the procurement process. A report will be forwarded to Council to
outline the implementation/construction of the project when a procurement
method is established.
Bus
Operations During and After Construction were also a major consideration in the
development of the functional plan, although the actual bus operating plans
will need further review during the detailed planning of the station and the
bus network that is put in place after construction will need to reflect the
ridership patterns in place at that time.
However, there are several assumptions that were made to determine the
impact of construction on bus services and to size the bus transfer facilities
included in the functional plan. The
DOTT project assumed that various segments of the
Transitway will be out of service as construction proceeds, during which
alternative arrangements will be needed, including:
·
Use of the shoulder or outside lane of the Queensway;
·
Dedication of traffic lanes to transit usage along some streets;
·
Implementation of traffic signal priority along key routes;
·
Minor reconfiguration of intersections and interchanges, to give buses
priority;
·
Potential major reconfiguration of the Nicholas interchange and access
to Lees Avenue to reduce impacts on vehicular circulation and to prioritize bus
movements to and from the core area via Nicholas;
·
Several alternate routes will be required, likely including:
o Innes, Industrial,
Ogilvie, Coventry, Tremblay, Riverside and the Queensway in the east;
o The Queensway,
Carling, Scott/Albert and the Ottawa River Parkway in the west;
·
Bus routes may be segregated into local and express services and
assigned to different routes to minimize local impacts.
Transit Services also undertook
a strategic plan (conceptual plan) for bus connections with the rail line for
the areas around the Rideau Centre, at downtown rail stations, Tunney’s
Pasture, Hurdman, St. Laurent, and Blair.
This is detailed in a separate report (IPD – Strategic Plan for Bus
Route Connections with Rail Line. Ref: ACS2009-ICS-TRA-0013).
During the detailed design phase, the final detour plans will be closely
co-ordinated with construction staging.
These plans may include temporary station facilities to provide good connectivity
to local routes and major trip origins and destinations, for instance if buses
serving St. Laurent Station are by-passing the existing station, expanded bus
bays may be required on St. Laurent to facilitate transfers.
At the end of the construction period, there will be substantial changes
to the existing BRT and local bus routes to provide connections with the new
LRT line, reflect the new operating philosophy, respond to ridership growth and
changes in ridership patterns and meet the operating budget requirements in
place at the time.
Figure 18(a) – Bus Diversion Routes
Figure 18(b) – Bus Diversion Routes
Property
Requirements
The functional design exercise has determined the land requirements based on the alignment for the Recommended Plan. Lands in both the private and public domain are required. Real Estate Services has established that 130 properties are needed for this project, as follows.
o 30 owned by the
NCC
o 15 owned by
Public Works
o 5 owned by
federal agencies
o 15 with
subterranean rights
o 5 with surface
rights
Property requirements are a key component of the implementation plan and direction to staff is needed to begin the real estate transaction process to ensure that land can be secured, and the proper sequence of construction staging is possible to minimize disruption of traffic and property. This is particularly important for the alignment west and east of the tunnel. The tunnel requirements for lands will focus on the downtown core requirements for property, easements, subterranean rights and staging areas.
The Business Case document is not part of the functional planning or environmental assessment requirements, but is intended to fulfill the information requirements of senior levels of government associated with funding major transit projects. The content consists of a detailed project description, a statement of the project's benefits including an analysis of the project's measurable results, and a series of specific information items relative to government priorities.
With a Recommended Plan defined, the business case for the Ottawa DOTT is now actively underway. The analysis of the project's results is being conducted using a Multiple Account Evaluation framework, which has allowed other project benefits to be calculated. The ridership is being refined and transportation impact information is being developed at time of writing and will be added to the business case. This analysis is expected to be completed by end of January 2010 and will be forwarded to Council for information.
Public art is an important component of the project and will be accommodated within station and runningway elements of the system. The City of Ottawa has a policy requiring that an amount equal to one per cent of an infrastructure project’s hard costs be dedicated to the provision of public art. An allowance of $10 million has therefore been included in project costing for public art. In addition to the provision of stand-alone pieces of artwork throughout the system, public art could also be integrated into the architectural elements of stations and runningways. Existing public art along the Transitway will be maintained wherever possible.
A public art
program geared specifically for this project will be developed by the City and
include input from a number of groups including the NCC, Algonquins of Ontario,
local arts interest groups and the community at large.
The approval of the Recommended Plan outlined in Document 1 and the recommendations presented for approval in this report will lead to a number of activities over the next several months. A critical path has been provided to Council and will be updated from time-to-time, as milestones are set. While the DOTT EA (Provincial process) is expected to be approved by the Minister in May 2010, the Federal EA process, which requires more design details, will continue and is expected to be complete in early 2011.
An overview of the next steps in the roll-out of this project, leading to contract award is as follows:
Planning and
EA:
13 January 2010 - Recommended Plan (functional design) to Council for approval
January/February 2010 - Notice of EA Commencement, including final consultation
Early March 2010 - Notice of EA Completion, EPR available for public review
Early April 2010 - Deadline for public comments on the EPR
Early May 2010 - Ministry of Environment Decision on the DOTT EA
It is importation to note that the City has undertaken an update of the risk assessment of the TMP as it relates to the DOTT project and also worked with Infrastructure Ontario to assess the merits of an alternate financing procurement (AFP) method. Analysis of the assessment is underway and will be the subject of a report on procurement of DOTT to Transit Committee and Council in the new year.
N/A
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, three Public Open Houses and presentations were conducted in
February, June and October 2009. More
than 300 people attended in total. The
City has received over 150 comments from the open houses which supplements
approximately 100 comments on the project that have been received to-date in
the form of written submissions or email from the project web-site.
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 through the EA stage.
A summary of
consultation efforts undertaken to date is provided in Document 2.
Issues Arising From
Consultations
National Capital Commission
The National Capital
Commission (NCC) has a mandate and mission to build the Capital region into a
source of pride and unity for Canadians.
They play a key role in the project as they have land holdings at a number
of stations, along the alignment and a special interest in the planning of the
core area of the City. The NCC also
grants applications for federal land use approvals.
A number of meetings have been
held with the NCC to deal with real estate issues, land use and design, and
other matters that fall within their mandate and require permits and
approvals. These matters have been
assessed in the context of this planning exercise and have been incorporated in
the Recommended Plan. Further
collaboration with the NCC is required to initiate the formal approval process
and this will be achieved as the project moves forward with design.
Some key issues
being dealt with include:
· Interim and ultimate bus operations and proposed BRT to LRT transfers areas;
· Proposed future modifications to interprovincial STO bus service routes on Ottawa side;
· Design principles and guidelines which have considered the capital perspective and National Symbols (Parliament, confederation boulevard, UNESCO site, etc);
· Transit-oriented land use design principles for stations located on future development lands;
· Ridership projections and future interprovincial transit considerations;
· Details on the federal land requirements (for both the NCC and other federal agencies and departments);
· Assessment of the effects of construction and implementation of LRT service on the environment, heritage/UNESCO Rideau Canal and proposed mitigation at federal sites in proximity to the national symbols, large commemorative sites and Parliament;
· Detailed information on the station design (dimensions, geometry, land requirements, etc) for stations where there is a capital interest; and,
· Business case (justification) for federal land use.
In addition, presentations to NCC’s Advisory Committee of Planning Design and Property (ACPDR) requires regular presentations and updates related to:
· Design Principles;
· Integration of Transportation and Land Use;
· Details of Station layout and Storage and maintenance Facility;
· Urban Design and Landscape; and,
· A transit System for the people; and,
· Federal EA process.
The Downtown
Coalition sought a cross-country alternative that would move the alignment
southerly under Albert Street before veering at Metcalfe Street towards Rideau
Station. This matter has been discussed with the Coalition in detail and
the recommended plan is now supported by the Coalition. It is now agreed that the recommended plan
achieves the following:
·
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;
·
Optimal walking distance to the station;
·
Does not require an “S” curve to reach Rideau Station;
·
Provides the potential for more access points to the surface;
·
Avoids technically difficulties under and around buildings;
·
Provides a smoother more comfortable ride through the core; and,
·
Will require less maintenance on vehicles (wheels).
Rideau Station and Rideau
Viking Corporation
The Viking Rideau Corporation
indicated that the recommended plan would not be suitable for the operation and
future growth of the shopping complex and its remaining development parcels
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. Transit Services has
undertaken a review of bus and passenger routings in the area and summarized
findings in a separate report (IPD – Strategic Plan for Bus Route Connections
with Rail Line. Ref: ACS2009-ICS-TRA-0013). The report concludes that:
·
Routings in the vicinity of the Rideau Centre can be modified to balance
the interests of transit customers, operations staff and the Rideau Centre;
·
Changes to the routings will help reallocate buses to the streets in
downtown in a manner consistent with balancing service on available streets;
and,
·
Performance of the routes, both in terms of costs and passengers
carries, will remain very similar to the current operations.
The recommended tunnel
alignment at Rideau Station serves multiple purposes, including facilitating
local transit connections with direct and indirect access to the By-Ward
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. The number of above-grade transfers and
reduced travel time because of a more direct transition between local and
regional traffic as well as the opportunity to transfer to local routes at
other stations along the LRT network will make this a very active station.
Extensive consultation has
been undertaken throughout the study.
The consultation effort is summarized in Document 2 – Summary of Public
Consultations.
There is strong public support
for this project. Major issues received
from the public and special interest groups arising from the recent Public Open
House #3 (26 October 2009) include:
Transit
Link to Gatineau
The issue of a transit link to Gatineau from Ottawa, and specifically from Bayview, was raised. This DOTT project does not preclude the development of an interprovincial transit link or transfer at Bayview, nor any other option. The infrastructure required to integrate interprovincial transit services is the subject of the Interprovincial Core Area Rapid Transit Integration Strategic Planning Study (a joint study with the STO/Gatineau, the NCC (project lead) and the City of Ottawa). The interprovincial transit study addresses both short-term and long-term solutions (operational improvements/coordination, and possibly new infrastructure). Options from that study will be presented for public review in early 2010, with an anticipated report to Transit Committee by mid 2010.
Tunnel Depth and
Access To Grade
There were concerns
that the tunnel is too deep and comments concerning the accesses to/from the
underground stations. This issue has
been discussed at consultation meetings and again at the most recent open
house. As stated earlier in this report
the Recommended Plan includes two entrance points at each station (there are
options for additional connections that can be provided by others). Stairs and escalators will be provided at
each entrance. There will be back-up
emergency power. The tunnels have to be
at a depth that clears underground utilities and parking garages but more
importantly it should be in solid bedrock to ease the construction effort,
duration, and risks. The depth of the
tunnel will be re-examined at the next phase of design, which will be supported
by additional geotechnical investigations such as borehole testing. With the current plan, the estimated time to
access the platform from street level varies depending on the station and the
access point chosen. However, the few
minutes that it takes to access the underground platform can be quickly offset
by the reliability and frequency of a grade-separated LRT service with headways
of approximately two minutes or less. A
discussion of utility relocation to accommodate construction of the tunnel and
above grade trackwork and stations is provided in Document 1.
Number of Downtown
Stations
This issue was
raised previously in May 2009 when Council deliberated and approved the DOTT
alignment and station locations. 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 identify
vehicle travel time and cost savings as concerns.
Using a benchmark
of 300-metre and 500-metre walking distances, it was demonstrated 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 the City’s guidelines
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. This practice is consistent with other successful transit systems
in other cities. Given the significant
cost of constructing underground stations, provision of additional stations in
the downtown is not recommended.
N/A
LEGAL/RISK MANAGEMENT
IMPLICATIONS
There
are no legal/risk management impediments to implementing this report's
recommendations.
The recommendations contained herein directly and indirectly support the following objectives of the Strategic Plan.
A1. Improve the City’s transportation network to afford ease of mobility, keep pace with growth, reduce congestion and work towards modal split targets.
B1. Attain transit goals (30% modal split) by 2021.
E6. Require walking, transit and cycling oriented communities and employment centres.
F2. Respect the existing urban fabric, neighbourhood form and the limits of existing hard services, so that new growth is integrated seamlessly with established communities.
F4. Ensure that City infrastructure required for new growth is built or improved as needed to serve the growth.
N/A
Detailed costing of the
recommended plan includes an estimate for property acquisition, design, project
management, construction, vehicles, and contingency. The capital cost estimate for this project is $2.1B, in 2009
dollars. The following is a summary of
the major cost elements of the project:
·
Transit Tunnel and
Underground Stations $735 million
·
Transitway to LRT Conversion $540 million
·
Maintenance and Storage
Facility and Vehicles $515 million
·
Property, Public Art,
Insurance $160
million
·
Project Director's
Contingency $100
million
·
Project Office $ 50 million
This project estimate does not include escalation, and is
subject to refinement as the project progresses through subsequent design
phases, such as preliminary engineering and approval of a procurement
model.
In a memo dated 23 October 2009 to the Mayor and members of Council from the Deputy City Manager and City Treasurer, the affordability of the DOTT project (as well as other rapid transit projects identified in Phase 1 of the TMP) was outlined. It was concluded that the City has the financial capacity to afford its share of all Phase 1 projects in accordance with the City's Fiscal Framework. The affordability model assumes that the two upper-tier levels of government will each contribute one-third of the total project costs. Once a preliminary agreement has been reached with our funding partners a subsequent report will be provided to Committee and Council for approval.
The draft 2010 budget includes a funding request of $74.3M in account 905176 LRT (Tunney's to Blair) to initiate property acquisition, preliminary engineering and procurement management. This allows the DOTT project to move forward from the planning/EA phase to implementation as quickly as possible.
Funding for the urban design study
and downtown transportation study (post DOTT implementation) are available in
existing transportation study accounts - 902973 Smart Growth Transit EAs, and
905184 Rapid Transit EAs.
Document 1 Functional Design of Recommended Plan (pdf only)
Document 2 Summary of Consultations
Document 3 Transit Plan Critical Path
Following Committee and Council approval of the
recommendations contained herein, Infrastructure Services and Community
Sustainability will undertake the following:
·
The formal
Environmental Assessment (EA) process using the functional design to define the
undertaking and file the Environmental Project Report with the Ministry of the
Environment in accordance with Ontario EA Regulation 231/08 for transit
projects.
·
Initiate
the property acquisition process, subject to the 2010 capital funding request.
· Initiate the preliminary engineering process, procurement management process, and property acquisition process.
· Undertake an urban design study and a transportation study for the downtown core area for post DOTT implementation.
SUMMARY OF PUBLIC
CONSULTATIONS DOCUMENT 2
Downtown Ottawa Transit Tunnel:
Tunney’s Pasture to Blair via a Downtown LRT Tunnel
|
||
Chronology of Consultation Meetings
|
||
Date |
Consultation Type |
Purpose |
13-Aug-08 |
CEAA, MOE Co-ordination Meeting |
Project introduction and EA
co-ordination |
21-Aug-08 |
ACPDR #1 |
Project introduction and overview |
09-Sep-08 |
ACG #1 |
Project introduction and overview |
09-Sep-08 |
BCG #1 |
Project introduction and overview |
09-Sep-08 |
PCG #1 |
Project introduction and overview |
29-Oct-08 |
ACG #2 |
Planning objectives, alternative
alignments and evaluation methodology |
29-Oct-08 |
BCG #2 |
Planning objectives, alternative
alignments and evaluation methodology |
29-Oct-08 |
PCG #2 |
Planning objectives, alternative
alignments and evaluation methodology |
02-Dec-08 |
ACG #3 |
Introduce expanded study area, draft
evaluation results |
02-Dec-08 |
BCG #3 |
Introduce expanded study area, draft
evaluation results |
02-Dec-08 |
PCG #3 |
Introduce expanded study area, draft
evaluation results |
16-Dec-08 |
PWGSC |
Tunney’s Pasture Design Alternatives |
18-Dec-08 |
Joint ACG/BCG/PCG Meeting #1 |
Project introduction and overview for
CG members in expanded study area |
19-Dec-08 |
NCC |
NCC input on alternative designs |
06-Jan-09 |
NAC |
NAC input on downtown alignments |
21-Jan-09 |
ACG #4 |
Downtown stations, alternative designs
for expanded study area, maintenance and storage facility overview |
21-Jan-09 |
BCG #4 |
Downtown stations, alternative designs
for expanded study area, maintenance and storage facility overview |
21-Jan-09 |
PCG #4 |
Downtown stations, alternative designs
for expanded study area, maintenance and storage facility overview |
04-Feb-09 |
NCC |
NCC Input on alternative designs |
18-Feb-09 |
Downtown Stakeholders (BCG #5) |
Alternative downtown alignments,
surface transit operations and additional station opportunities |
26-Feb-09 |
ACPDR #2 |
Alternative alignments and design
options |
26-Feb-09 |
Public Open House and Presentation #1 |
Project introduction and overview,
alternative alignments and design options, draft evaluation results |
10-Mar-09 |
Centretown Community Groups |
Overview of Alternative Alignment and
Station Layout |
26-Mar-09 |
Rideau Viking Corporation, Rideau BIA |
Alternative downtown alignments and
surface transit operations |
27-Mar-09 |
Downtown Coalition |
Alternative downtown alignments and
surface transit operations |
27-Mar-09 |
University of Ottawa |
Campus Station design options |
16-Apr-09 |
Pedestrian and Transit Advisory
Committee |
DOTT project update |
04-May-09 |
ACPDR #3 |
Preferred DOTT alignment and station
locations |
06-May-09 |
City of Ottawa Transit Committee |
Committee approval of recommended DOTT
Alignment and Station Locations |
27-May-09 |
City of Ottawa Council |
Council approval of recommended DOTT
Alignment and Station Locations |
11-Jun-09 |
MTO Co-ordination |
Co-ordination of MTO projects with DOTT
construction and DOTT impacts on Highway 417 corridor |
22-Jun-09 |
Rideau Viking Corporation |
Rideau Station impacts and connection
opportunities |
22-Jun-09 |
Joint ACG/BCG/PCG Meeting #2 |
Maintenance and Storage Facility site
selection overview |
24-Jun-09 |
Public Open House #2 (M&S Facility) |
Maintenance and Storage Facility
Introduction, Site Selection Evaluation and draft evaluation results |
11-Aug-09 |
NCC |
NCC Input on project |
11-Aug-09 |
Rideau Viking Corporation |
Rideau Station connection opportunities |
17-Sept-09 |
CITE - Presentation |
Overview of Recommended Plan |
17-Sept-09 |
PTAC |
Information related to Recommended Plan
and Project Status |
14-Oct-09 |
NCHCA – Trade Show |
Overview of Recommended Plan |
21-Oct-09 |
ACG #5 |
Overview of Recommended Plan |
21-Oct-09 |
BCG #6 |
Overview of Recommended Plan |
21-Oct-09 |
PCG #5 |
Overview of Recommended Plan |
26-Oct-09 |
Public Open House and Presentation #3 |
Overview of Recommended Plan |
04-11-09 |
DOTT presentation to Bay Ward Community
Council |
Overview of Recommended Plan |
08-Oct-09 |
City/NCC Scheduling/Information Sharing
Working Group |
Scheduling/Information Sharing with NCC |
22-Oct-09 |
City/NCC |
DOTT Scheduling and Timing Meeting |
05-Nov-09 |
City/NCC Scheduling/Information Sharing
Working Group |
DOTT EA coordination meeting |
05-Nov-09 |
DOTT presentation to West Wellington
Community Association |
Overview of Recommended Plan |
06-Nov-09 |
MTO Co-ordination |
Use of Queensway during DOTT
construction and alternative bus routings/requirements |
TRANSIT PLAN CRITICAL PATH DOCUMENT 3
Transit Plan Critical Path – Updated December 7, 2009 |
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Memo & Reports |
||||
Tabled/Memo Date |
Transit Committee Date |
Council Date |
Title |
Description |
23-Oct-09 |
Listed as an IPD on 16-Dec-09 |
|
Cost and Affordability Memo |
Update to City Treasurer’s September 2008 memo advising council of the affordability of the city’s Transit Plan. This memo included updated DOTT project costing. |
21-Oct-09 |
18-Nov-09 |
25-Nov-09 |
Rail System Selection Report |
Council was presented with technology options for the Rapid Transit Plan |
21-Oct-09 |
18-Nov-09 |
25-Nov-09 |
Transit Tactical Plan Report |
Council was presented with Transit Services 10 year Tactical Plan |
|
21-Oct-09 |
|
RFI (Stakeholder Development Input) Report |
Committee was presented with a report for information about the results of the Request for Information for potential development opportunities/synergies with businesses located along the transit plan corridor |
|
Listed as an IPD on 16-Dec-09 |
|
Strategic Plan for Bus Route Connections |
Committee will be presented with information about the integration of the LRT service with bus service. |
|
Will be placed on the agenda in Q1 2010
when we have more clarity around funding and functional design |
|
Transit Procurement Analysis & Options Report |
Committee will be presented with a report that summarizes the analysis that has been undertaken of the various procurement and delivery methods for the DOTT project inclusive of the Infrastructure Ontario model. |
|
Will be placed on the agenda once a
funding agreement has been secured |
|
Transit Investment Strategy Framework Report |
Committee will be presented with a report that summarizes the analysis that has been undertaken of various financial tools that can be used to fund the TMP, encourage Transit Oriented Development and transit use. |
|
16-Dec-09 |
13-Jan-10 |
DOTT Planning & Environmental Assessment Report |
Council will be presented with a Functional Design recommendation. This will initiate the formal EA process (final consultation and documentation) |
|
Will be placed on the agenda in once a funding agreement has been secured |
|
Business Development Strategy |
Report on the development of opportunities/synergies with businesses located along the transit plan corridor |
Processes |
||||
|
Start |
Finish |
Title |
Description |
|
Q3 2009 |
Q3 2010 |
Infra Ontario (IO) Assessment |
Infrastructure Ontario preliminary Value for Money Assessment, analysis of DOTT project and Alternative Finance Procurement (AFP) options, and Memorandum of Understanding (MOU) if selected as the City's procurement agent |
|
Q3 2009 |
Project completion |
Start Up & Staff Project Office |
Facilitate project progression including property acquisition, preliminary engineering, and procurement management. The project office will staff and operate to align with budget approvals and procurement decisions |
|
26-Oct-09 |
Q3 2011 |
Public Consultation / Industry Outreach |
Open House on Functional Design occurred on October 26th. Consultation with stakeholders and the public will occur throughout the length of the project |
|
Q4 2009 |
Q1 2010 |
Provincial/Federal MOU |
Senior government, memorandum of understanding (MOU), and funding agreement |
|
Q1 2010 |
Q1 2013 |
Acquire ROW Properties |
Secure project properties and access rights along project corridor |
|
Q1 2010 |
Q2 2010 |
DOTT EA Process |
Final consultation, documentation, and filing of Environmental Project Report to the Ministry of the Environment - for approval |
|
Q1 2010 |
Q2 2010 |
Engineering & Contract Management Support Consultant |
Advance EA engineering to level suitable for procurement. This level will be defined when a procurement model is selected |
|
06-Apr-10 |
10-May-10 |
MOE Decision |
Environmental Assessment approved by Provincial Ministry of Environment |
|
Q2 2010 |
Q3 2011 |
Preliminary Engineering |
Advance EA engineering to level suitable for procurement. The level of engineering/design will be defined when a procurement model is selected |
|
Q3 2010 |
Q3 2011 |
Output Specifications |
Advance output specifications to level suitable for procurement. This level will be defined when a procurement model is selected |
|
Q4 2010 |
Q3 2011 |
RFQ Process |
Request for Qualification for project construction and vehicles |
|
Q3 2011 |
Q1 2013 |
RFP Process |
Request for Proposal for project construction and vehicles |