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2. TRANSIT FLEET ACQUISITION STRATEGY STRATÉGIE D’ACQUISITION DE VÉHICULES DE TRANSPORT EN
COMMUN
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Committee recommendationS AS AMENDED
That Council:
1. Defer Recommendations 1 and 2 of the
report until 5 September 2007.
2. Approve the purchase of three
prototype double-decker buses for delivery in 2008 and a reduction in the
number of articulated buses to be delivered in 2008 from 57 to 54.
RecommandationS
MODIFIÉES du Comité
Que
le Conseil:
1. reporte les Recommandations 1 et 2 du présent rapport au
5 septembre 2007;
2.
approuve l’achat de trois autobus prototypes à deux étages pour livraison en 2008 et le
nombre d’autobus articulés à livrer en 2008 est ramené de 57 à 54.
Documentation
1.
Deputy City Manager's report Planning, Transit and the Environment
dated
11 June 2007 (ACS2007-PTE-TRA-0009).
2. Extract of
Minutes 10, Transit Committee Meeting of 20 June 2007.
Report to/Rapport
au:
Transit Committee
Comité du
transport en commun
and
Council/et au Conseil
11 June
2007/le 11 juin 2007
Submitted by/Soumis par: Nancy Schepers/Deputy City
Manager/Directrice municipale adjointe
Planning, Transit and the Environment/Urbanisme, Transport en
commun et Environnement
Contact/Personne-ressource: A.
Mercier, Director/Directeur, Transit Services/Services
du transport en commun
613-842-3636 ext. 2271, alain.mercier@ottawa.ca
|
Ref N°: ACS2007-PTE-TRA-0009 |
|
SUBJECT: |
|
|
|
|
|
OBJET : |
REPORT
RECOMMENDATIONS
That the
Transit Committee recommend Council approve the bus acquisition strategy for
the next five years as described in this report and, specifically:
1.
The commencement of the procurement process for 40-foot
buses in advance of actual approved budgets, as an exception to the
requirements of the Purchasing By‑law, with the stipulation that the RFP
document contain a clause stating that any award as a result of this
procurement process will be subject to the approval of budgetary funding by
City Council;
2. The advancement of $1.5 million
authority from 2008 for the purchase of two 40‑foot pilot buses; and,
3. The
purchase of three prototype double-decker buses for delivery in 2008 and a
reduction in the number of articulated buses to be delivered in 2008 from 57 to
54.
RECOMMANDATIONS
DU RAPPORT
Que le Comité du transport
en commun recommande au Conseil d’approuver la stratégie d’acquisition
d’autobus pour les cinq prochaines années selon les détails du présent rapport
et, en particulier, ce qui suit :
1.
Le
lancement du processus d’acquisition d’autobus de 40 pieds avant
l’approbation des budgets actuels, une exception aux exigences du Règlement
municipal sur les achats, en précisant que la DDP doit contenir une disposition
soulignant que toute attribution découlant de ce processus d’acquisition
exigera l’approbation du financement au budget par le Conseil municipal;
2. L’autorisation d’avancer
1,5 million de dollars en 2008 pour l’achat de deux autobus pilotes de
40 pieds; et
3. L’achat de trois autobus
prototypes à deux étages pour livraison en 2008 et le nombre d’autobus
articulés à livrer en 2008 est ramené de 57 à 54.
EXECUTIVE SUMMARY
Assumptions and Analysis
With increasingly long-distance commuter travel by bus, the interest in double-decker buses as part of Ottawa’s transit service has been growing. Alexander Dennis has produced a double-decker bus (Enviro 500) designed for the North American market, which is in service in Victoria, BC, and on order by GO Transit for use in Toronto.
The main benefit of double-decker buses lies in their seating capacity: with 84 seats, compared to 54 in an articulated bus, it would be possible to provide seats for a larger proportion of long-distance commuters. This would be a significant advantage in attracting people to transit. Added to that, the shorter length – 40-foot compared to 60-foot for an articulated bus – means that their footprint on the roadway is less, so they take up less space at bus stops: a feature that would be highly desirable in Ottawa’s central area.
In the summer of 2006, a double-decker bus was run in service in Ottawa to get an indication of customers’ reaction to this type of bus and also to gain operator feedback from their experience driving the bus. The results of this demonstration were very encouraging and in August 2006, Council approved funding for a double-decker bus trial for the winter of 2006/2007 to include cold weather testing and an assessment of possible maintenance and storage facilities.
The results of the double-decker winter trial were satisfactory and staff is recommending that three pilot buses be purchased to run in service for the winter of 2008/9 and, assuming a successful experience with these buses, that bus growth and replacement requirements for 2011 and 2012 be met with double-decker buses. The three pilot buses would be purchased instead of three articulated buses that are included in the 2008 capital budget.
The transit service plan has
been revised to take account of the results of the double-decker assessment and
the need to maintain smooth operations in the central area. The recommended fleet acquisition strategy
supports the current plans for transit service growth over the next several
years and takes account of the timelines for procurement of double-decker
buses. It is also consistent with the
objective of minimizing the environmental impact of transit operations.
The recommended plan
includes the purchase of 40-foot buses for delivery in 2009 and 2010 and, to
minimize the environmental impact, these would be diesel-electric hybrid buses
as the majority of them would be used on low-speed routes. To meet the requirement to take delivery of
these 40-foot buses in 2009, the procurement process must start straight away
and would require a pre-commitment of authority from the 2008 budget to cover
the cost of two pilot buses.
Financial Implications
The advancement of $1.5 million authority from 2008, as forecasted in
the 2007 capital budget, for the purchase of two 40-foot diesel electric hybrid
(DEH) pilot buses will require a similar reduction in the departmental spending
envelope available for the 2008 capital budget.
The financial impact of the purchase in 2008 of
three prototype double-decker buses and the reduction of the number of
articulated buses to be delivered in 2008 will be determined by the unit price
differential between these two types of buses.
Based upon available pricing information, it is expected that the
purchase of the three prototype double-decker buses will not increase the
forecast of capital spending authority required for 2008 deliveries.
Public Consultation/Input
Customer feedback was sought during the summer
and winter double-decker operational trials and overall the views were highly favourable.
RÉSUMÉ
Hypothèses et analyse
Étant donné les
déplacements quotidiens en autobus de plus en plus longs pour aller au travail,
l’ajout d’autobus à deux étages dans le transport en commun suscite de plus en
plus d’intérêt à Ottawa. Alexander Dennis a conçu un autobus à deux étages
(Enviro 500) pour le marché nord-américain, il y en a un en service à Victora
en C.‑B. et GO Transit en a commandé un pour Toronto.
Le nombre de sièges
est le principal avantage de l’autobus à deux étages : 84 au lieu de 54
dans un autobus articulé. Il y aurait donc davantage de sièges pour les
navetteurs longue distance. Ce serait un avantage important pour inciter les
gens à emprunter le transport en commun. Étant aussi plus court que l’autobus
articulé, soit 40 au lieu de 60 pieds, l’autobus à deux étages est moins
encombrant dans la circulation et il prend moins de place aux arrêts,
caractéristique fortement souhaitable au centre-ville d’Ottawa.
Un autobus à deux
étages a été mis en service à Ottawa pendant l’été 2006 pour obtenir la
réaction des passagers à ce genre d’autobus et la rétroaction du conducteur.
Les résultats de cette démonstration sont très encourageants et, en
août 2006, le Conseil a approuvé le financement d’un autobus à deux étages
pour mise à l’essai par temps froid pendant l’hiver 2006‑2007 et pour
évaluer les installations éventuelles de rangement et d’entretien.
Les résultats de
l’essai en hiver de l’autobus à deux étages sont satisfaisants et le personnel
recommande d’acheter trois autobus pilotes pour mise en service pendant l’hiver
2008‑2009 et, si l’expérience réussit, de choisir des autobus à deux
étages en 2011 et 2012 pour répondre aux besoins d’ajout et de remplacement.
Les trois autobus pilotes seraient achetés au lieu de trois autobus articulés
compris dans le budget d’immobilisations 2008.
Le plan des services de transport en commun a
été révisé pour tenir compte des résultats de l’évaluation de l’autobus à deux
étages et du besoin de maintenir le fonctionnement sans heurt au centre-ville.
La stratégie d’acquisition recommandée pour le parc d’autobus soutien les plans
actuels pour la croissance des services de transport en commun pendant les
prochaines années et elle tient compte de l’échéancier d’acquisition d’autobus
à deux étages. Elle correspond aussi à l’objectif visant à minimiser les
répercussions environnementales des activités du transport en commun.
Le plan recommandé comprend l’achat d’autobus
de 40 pieds pour livraison en 2009 et 2010 et, afin de minimiser les
répercussions environnementales, ces autobus seraient des hybrides fonctionnant
au diesel et à l’électricité parce qu’ils seraient surtout affectés à des
itinéraires à vitesse réduite. Si nous voulons obtenir ces autobus de
40 pieds en 2009, il faut lancer immédiatement le processus d’acquisition
et obtenir l’autorisation d’engager d’avance une somme au budget 2008 pour
couvrir le coût de deux autobus pilotes.
Répercussions financières
L’autorisation d’avancer 1,5 million de dollars en 2008, comme
prévu dans le budget d’immobilisations de 2007, pour l’achat de deux autobus pilotes hybrides fonctionnant au
diesel et à l’électricité (HDE) exigera une diminution équivalente à
l’enveloppe des dépenses des services disponible pour le budget d’immobilisations
2008.
Les répercussions financières de l’achat en
2008 de trois autobus prototypes à deux étages et la diminution du nombre
d’autobus articulés à livrer en 2008 seront déterminées par l’écart de prix à
l’unité entre ces deux types d’autobus. Selon l’information disponible sur les
prix, on a prévu que l’achat des trois autobus prototypes à deux étages ne
haussera pas la prévision du pouvoir de dépense en immobilisations nécessaire
pour les livraisons en 2008.
Consultation publique / commentaires
On a demandé la
rétroaction des passagers pendant les essais fonctionnels de l’autobus à deux
étages en été et en hiver et les opinions dans l’ensemble sont très favorables.
BACKGROUND
In the summer of 2006, a double-decker bus was run in service in Ottawa to get an indication of customers’ reaction to this type of bus and also to gain operator feedback from their experience driving the bus. The results of this demonstration were very encouraging.
In August 2006, Council approved funding for a double-decker bus trial for the winter of 2006/2007 on the grounds that, if suitable for operation in Ottawa, double-decker buses could provide high-quality service for suburban commuters with lower cost and lower environmental impact per seat kilometre. At the same time, Council approved a bus acquisition strategy built around the implementation of a North-South Light Rail Transit system, which was expected to be in place by 2010.
The North-South LRT project was cancelled in December 2006 and, in January 2007 a report was presented to Transit Committee as background to the 2007 Budget deliberations that described how the transit service plan had been adjusted to take account of the LRT cancellation. This report provided detailed information on transit services to be provided in 2007 and also revised the transit fleet acquisition plan to 2011.
The acquisition of 57 articulated buses was approved in the 2007 capital budget for delivery in 2008 to accommodate annual fleet replacement and growth requirements.
The results of the double-decker bus winter trial are now available and there is now more certainty about the service plan for the next few years. This report presents the results of the double-decker bus trial and outlines a revised transit bus fleet acquisition strategy.
DISCUSSION
Introduction
With increasingly long-distance commuter travel by bus, the interest in double-decker buses as part of Ottawa’s transit service has been growing. Alexander Dennis has produced a double-decker bus (Enviro 500) designed for the North American market, which is in service in Victoria, BC, and on order by GO Transit for use in Toronto.
The main benefit of double-decker buses lies in their seating capacity: with 84 seats, compared to 54 in an articulated bus, it would be possible to provide seats for a larger proportion of long-distance commuters. This would be a significant advantage in attracting people to transit. Added to that, the shorter length – 40-foot compared to 60-foot for an articulated bus – means that their footprint on the roadway is less, so they take up less space at bus stops: a feature that would be highly desirable in Ottawa’s central area.
This winter, work has been done to determine whether or not the double-decker could feasibly be employed on the OC Transpo system. In addition to being placed in revenue service for two weeks, the bus underwent a climate chamber test at –31 Celsius and a series of on-road performance tests on a track.
The winter cold weather trial and work done to develop a plan for the maintenance and storage of double-decker buses has made it possible to develop a realistic scenario that would enable the City to take delivery of a significant order of double-decker buses in 2011, while mitigating risks associated with a very different bus type.
This report summarizes the results of the double-decker winter trial and proposes a revised transit fleet acquisition strategy that takes account of current circumstances.
Double-Decker
Bus Trial
Cold
Weather and Road Performance Testing
The National Research Council (NRC) of Canada was contracted to conduct two test programs on the Enviro 500 double-decker bus received for trial from Alexander-Dennis. The demo bus was designed to operate in Las Vegas and was not equipped to operate in a Canadian winter environment. The test programs therefore served to identify areas of concern, and design and equipment requirements for Ottawa operation.
The NRC conducted two test programs. NRC placed the double-decker bus in its climatic chamber to assess the vehicle’s ability to heat the passenger area and bus operator compartment as well as defrost windows and meet other technical requirements.
In its Las Vegas configuration, the bus did achieve the required interior temperatures but not within a reasonable period of time. However, with additional optional heaters it is likely the bus could meet Ottawa requirements. To confirm the ability for the bus to function in the Ottawa environment and reduce risk to at least at moderate level, it would be important to operate a bus built to Ottawa’s design specifications throughout at least one complete seasonal cycle. Operational experience through several seasonal cycles would be required to further reduce risk to a low level, however, as discussed later, this delay would not meet the deployment requirements.
NRC’s second test program was focused on road performance evaluation, using industry-accepted tests, on the snow covered test tracks at the PMG Technologies site in Blainville, Quebec. The objective was to evaluate the double-decker bus handling capabilities on snow and ice covered surfaces.
The NRC concluded that the bus performed normally throughout the test program. The use of an optional Traction Assist System enhanced bus performance substantially. Based on the double lane change test, NRC stated there is no chance of rollover during such a manoeuvre on snow-covered surfaces below 46 kilometres per hour. The bus also climbed a 25-degree slope partially covered with snow and ice.
The Enviro 500 performed quite well within the selected tests. However, there remains concern that the overall performance has not been demonstrated throughout the full range of Ottawa operating conditions.
In-Service
Testing
The double-decker bus was placed in revenue service on route 96 for a two-week period from February 5 to February 16. As was the case during the summer test, the bus was well received by customers. Document 1 shows results from a survey of 73 customers. There were favourable rankings assigned to all characteristics and features of the bus, with particular high marks going to the view, seating capacity, comfort of seats, interior layout, sense of safety, ease getting on and off, and the spaciousness of the bus. Seven percent of those surveyed commented that there was not enough headroom on the second level and they didn’t like the facing seats. Overall, ninety-two percent of those surveyed said the double-decker bus was suitable for Ottawa.
A small focus group was held with three bus operators who drove the double-decker bus in revenue service. In general, the operators felt that with proper training and with certain changes made to the bus as part of the procurement process, the bus would be suitable for operations.
Maintenance Facility
Requirements
The consulting firm KPMG was contracted to conduct a facility options study from which double-decker buses could operate and be maintained starting as early as 2009. Several options were considered including existing facilities (Merivale or St. Laurent), the planned new garage on Industrial Road, the Swansea municipal garage, using a privately owned facility, and a P3 arrangement of design-build-maintain. It was concluded that, at this time, the expansion and reconfiguration of Merivale Garage is a practical proposition and appears to be the best option.
Merivale Garage could be modified slightly and outdoor parking expanded to accept a double-decker bus fleet of up to 110 buses at an estimated capital cost of $13 million with about $65,000 annual rental fee for parking space on Hydro One land. This option would increase capacity of existing facilities such that the next new transit garage currently scheduled to open in 2014 could be delayed by up to four years.
Options to design the new garage on Industrial Road to accommodate double-decker buses were also assessed. However, it was concluded that the new garage should go ahead as planned to service existing and planned articulated buses since it must be operational by 2009 to meet current and planned service requirements. Building plans have now advanced beyond the stage at which design changes could be made without delaying the opening beyond 2009.
A part of the assessment of the feasibility of
double-decker buses for Ottawa was an investigation of the physical feasibility
of double-decker buses on Ottawa streets and on the Transitway by the
consulting firms Morrison Hershfield and Jacques Whitford. This work was underway at the time of
writing this report and preliminary findings have been received from the
consultants.
The
consultants examined the vertical clearance at all points on the Transitway and
on major City streets that are used for bus routes that might be equipped with
double-decker buses. Three points on
the Transitway were found where the consultants recommend increasing the
vertical clearance, two by lowering the Transitway roadway surface slightly
under an overpass and one by reconfiguring light fixtures and fire sprinklers
within a Transitway station. Two points
on City streets were found where the consultants recommend increasing vertical
clearance by lowering the roadway surface slightly. The consultants estimate the costs of these changes at
approximately $800,000. Staff will
investigate the locations further and will include the appropriate funding in
the work plan for 2008.
The weight distribution of double-decker buses on its axles is different from the 40-foot standard buses and 60-foot articulated buses that the City now uses and also from the 40- and 45-foot highway coaches that also operate on City streets. The main issue of concern is the front axle, because it carries more weight than it would on a standard bus. The investigation identified issues of weight and weight distribution that could have effects on the pavement structure of City streets and that may conflict with normal standards. The investigation found that the increased weight carried by the tires on the front axle and on the tax axle behind the driving axle would cause more wear on pavement than do any of the current bus types. This increased wear could be compensated-for in any new roadways but would reduce the life expectancy of existing roadways. The effect depends on the frequency of transit service on a street or a section of Transitway and on the proportion of the bus trips that are operated with double-decker buses. Staff are continuing to discuss the findings with the consultants.
Timelines to Acquire
Double-Decker Buses
The purchase of double-decker buses would need to be a sole source contract with Alexander-Dennis from the United Kingdom (UK) because no other manufacturer produces a double-decker bus for the Canadian market. The manufacturer has advised that it would be able to produce out of their UK plants the required quantity for 2009 deliveries, but that there would be risks in doing so. These risks include limited design changes from the manufacturer’s proposed design, no pilot bus delivery and trial, and no pre-production design changes after delivery of two lead production buses. Also, staff have concluded that it is important to know more about the expected availability rate of these buses in regular service in Ottawa.
As previously stated, the Enviro 500 double-decker bus performed relatively well within the selected tests. However, there has been no complete evaluation and test program for operation in the Ottawa environment. With any bus purchase, it is important to minimize the risk of design maturity through operating experience with pilot buses. As this is a European bus without operational experience in a northern climate, there would be considerable risk in committing to large-scale procurement without further risk mitigation. It is also important to ensure that there is sufficient technical support for the buses in Canada and that the availability of spare parts is not an issue.
To manage these risks, it would be ideal to operate a small number of these buses throughout several seasonal cycles to ensure all operational and climatic conditions were experienced. This, however, would delay introduction of the bus until 2012 or later and be incompatible with City transit requirements. For this reason, a somewhat shorter cycle, operating three pilot buses for one complete year, is proposed that will allow for operational experience through all seasons while permitting deployment in 2011 to meet City needs with moderate risk.
Review
of Transit Service Plan
The recommended fleet
acquisition strategy supports the current plans for transit service over the
next several years and takes account of the timelines for procurement of
double-decker buses. It is also
consistent with the objective of minimizing the environmental impact of transit
operations.
The 2007 Transit Service Plan, presented to
Transit Committee on January 31, 2007, set out the expected service changes
that would be needed to support increasing ridership and changing travel
patterns through 2007 and early 2008.
Funding for these service improvements was approved by Council as part
of the 2007 budget. The Downtown
Operating Strategies 2007-2010 report, presented to Transit Committee on
May 16, 2007, described the ways that staff are managing transit operations in
and through downtown over the next few years to continue to accommodate
increasing ridership but without increasing the number of bus trips on downtown
streets above the number that can be operated feasibly and reliably.
Key to both accommodating the continuing growth in
ridership and managing a fluid operation through downtown is the acquisition of
high-capacity buses. As it is not
possible to acquire double-decker buses until 2011, the fleet plan was reviewed
to determine the number of high capacity buses necessary to ensure smooth
operations through the downtown core between now and 2011.
The approved 2007 budget calls for 57 high-capacity
articulated buses for delivery in 2008.
This number of high-capacity buses will be enough to accommodate the
expected ridership growth on downtown services without increasing the number of
bus trips operating through the most congested areas until 2010-2011.
It is therefore proposed that for bus deliveries in
2009 and 2010, 40-foot buses be used for growth and replacement purposes, leaving
scope to expand the high-capacity fleet when double-decker buses become
available. The possibility of
purchasing some smaller buses for use for feeder service in low-density areas
will be pursued. Based on the
preliminary service plan, ten of these 40-foot buses may be replaced by smaller
buses.
The use of double-decker buses would allow for
ridership growth to continue to be accommodated beyond 2010 without increasing
the number of bus trips, because double-decker buses can carry more passengers
than articulated buses do.
Double-decker buses are particularly well-suited to suburban express
services because they provide many more seats than other bus types. With fuel consumption at marginally less
than that of the D60 articulated buses, this would translate into reduced costs
and improved environmental impact on a per seat kilometre basis.
One of the important elements for the success of
double-decker buses in Ottawa’s operating environment is their ability to
support rapid passenger boarding at downtown stops in the afternoon peak
period. Preliminary indications are
positive, based on experience with articulated buses at these stops and the
experience gained in the double-decker operational tests. The bus stops at which rapid boarding times
are most critical are in the afternoon peak period on Albert and Slater
Streets. At these stops, the passenger
flow will be mainly in one direction (boarding) and the proof of payment system
will operate, encouraging customers with passes to board at the rear door. However, the pilot buses will be used in
operation to confirm this assumption.
The Table below shows the recommended fleet
acquisition strategy.
Recommended Fleet Acquisition Plan
|
|
GROWTH |
REPLACEMENT (1) |
RECOMMENDED ACQUISITION |
|
|
Standard-Equivalent
Buses Required |
Standard-Equivalent Buses Required |
Bus Type and Quantity |
|
2007 |
49 |
38 |
87
40-foot buses (2) |
|
2008 |
39 |
46 |
57
articulated buses (3) |
|
2009 |
40 |
57 |
97
40-foot buses |
|
2010 |
42 |
63 |
105
40-foot buses (4) |
|
2011 |
43 |
18 |
40
high-capacity buses (5) |
|
2012 |
44 |
11 |
37
high-capacity buses (5) |
|
Total 2007-2012 |
257 |
233 |
423
buses (6) |
(1) Bus replacements are based on the manufacturer’s life expectancy of 12 years followed by a structural refurbishment to extend life to 18 years – average bus life. Variations and exceptions occur with actual condition assessments of the units and best value for money re-invested in the units.
(2) Ordered: delivery underway.
(3) It is recommended that this bus order, approved in the 2008 budget, be adjusted to 54 articulated buses and three pilot double-deckers.
(4) Detailed planning studies may determine that some of these may be smaller buses. Preliminary assessment suggests the number may be approximately 10.
(5) To be determined whether double-decker or articulated buses based on assessment of pilot double-deckers.
(6) Equivalent capacity to 490 standard buses.
Fleet Acquisition Implications
If the recommended transit fleet acquisition
strategy is approved, the following actions will be necessary:
40-Foot Buses
The report on today’s agenda covering the independent evaluation of the
CNG bus option recommends that staff be directed to purchase DEH buses, where
there is a business case to support it.
In order to take delivery of diesel or DEH buses in 2009, the procurement
process must start immediately with the issuance of a Request for
Proposal. The waiving of the purchasing
by-law would be necessary because the funding for bus deliveries for 2009 is
not yet approved and will be part of the 2008 capital budget. The invitation to bidders for both options
of DEH and clean diesel buses will permit the business case for DEH to be
confirmed before the final purchase. It
is anticipated that there will be no difficulty in placing most of the DEH
buses arriving in 2009 and 2010 on low-speed routes, and therefore a positive
business case is expected.
As part of the
procurement, two pilot buses would need to be ordered in 2007 for delivery in
2008, which means that $1.5 million would need to be advanced from the 2008
capital budget, and this is recommended in this report.
High Capacity Buses
The 2007 capital budget includes funding for 57
articulated buses for delivery in 2008.
It is recommended that three of these buses be replaced to allow the
purchase of three pilot double-decker buses.
This would start the process to acquire 40 double-decker buses for
delivery in 2011 and 37 for delivery in 2012, and perhaps more in the future,
in a way that minimizes risk to the City.
The purchase of double-decker buses beyond the three pilot buses would,
of course, be subject to future budget approvals.
Should the three-bus trial prove the double-decker bus model inadequate
for Ottawa transit services, these units would be disposed of in a
cost-effective manner.
Smaller Buses
Based on the preliminary
service plan, it is estimated that ten of the buses slated for delivery in 2010
could be smaller buses, rather than 40-foot buses. Staff will develop a more detailed service plan to confirm the
number and also review the options available for the acquisition of smaller buses
in the next few months.
CONSULTATION/PUBLIC NOTIFICATION
Customer feedback was sought during the summer
and winter double-decker operational trials and overall the views were highly favourable.
TRANSPORTATION MASTER PLAN
The recommended fleet acquisition strategy
would support three percent transit ridership growth and ensure smooth
operations through the central area.
FINANCIAL IMPLICATIONS
The financial implications of the three
recommendations contained in this report are as follows:
1. The Purchasing By-law, under section 6 shown below, requires that funds be approved by Council in advance of contract award, and Purchasing, as standard practice, ensures that this provision is met in advance of issuing a competitive bid solicitation.
REQUIREMENT FOR APPROVED FUNDS
6. (1) The exercise of authority to award a contract is subject to the identification and availability of sufficient funds in appropriate accounts within Council approved estimates.
The intent of Recommendation 1 is to allow the procurement process to proceed in advance of Council approved estimates, however, with the clear stipulation in the Request for Proposal that any award as a result of that process is subject to Council approval of the necessary budgetary funding. This approach has been endorsed by Supply Management as a means of moving forward.
2.
The
advancement of $1.5 million authority from 2008, as forecasted in the 2007
capital budget, for the purchase of two 40-foot DEH pilot buses will require a
similar reduction in the departmental spending envelope available for the 2008
capital budget. The commitment of funds
for the placement of this bus order will be funded by the Transit Reserve.
3.
The
financial impact of the purchase in 2008 of three prototype double-decker buses
and the reduction of the number of articulated buses to be delivered in 2008
will be determined by the unit price differential between these two types of
buses. Based upon available pricing
information, it is expected that the purchase of the three prototype
double-decker buses will not increase the forecast of capital spending
authority required for 2008 deliveries.
SUPPORTING DOCUMENTATION
Document 1 Ranking of Double Decker Characteristics
DISPOSITION
Following
the approval of the transit fleet acquisition strategy by Council, staff will
start the acquisition process for 40-foot buses for delivery in 2009 and 2010
and negotiate the purchase of three double-decker buses, to be built to
specifications suitable for Ottawa’s climate, for delivery in late 2008.
Ranking of Double
Decker Characteristics DOCUMENT
1
|
|
Rating (% of All
Responses) |
||||||
|
Feature |
1 (Poor) |
2 |
3 |
4 |
5 (Good) |
No Response |
Total % |
|
Comfort: Seats |
0.0 |
0.0 |
9.6 |
42.5 |
41.1 |
6.8 |
100 |
|
Comfort: Leg room |
1.4 |
9.6 |
19.2 |
32.9 |
28.8 |
8.2 |
100 |
|
Comfort when standing |
2.7 |
4.1 |
19.2 |
30.1 |
23.3 |
20.5 |
100 |
|
Comfort of ride |
0.0 |
0.0 |
9.6 |
38.4 |
30.1 |
21.9 |
100 |
|
Interior layout |
0.0 |
0.0 |
12.3 |
35.6 |
38.4 |
13.7 |
100 |
|
Second level |
0.0 |
1.4 |
2.7 |
17.8 |
38.4 |
39.7 |
100 |
|
Stairs to second level |
0.0 |
2.7 |
2.7 |
34.2 |
24.7 |
35.6 |
100 |
|
Sense of safety |
0.0 |
0.0 |
16.4 |
39.7 |
37.0 |
6.8 |
100 |
|
Number of seats |
0.0 |
1.4 |
12.3 |
37.0 |
39.7 |
9.6 |
100 |
|
Ease of passenger circulation |
0.0 |
2.7 |
13.7 |
41.1 |
26.0 |
16.4 |
100 |
|
Hand rails and grab rails |
0.0 |
5.5 |
13.7 |
35.6 |
32.9 |
12.3 |
100 |
|
View of outside |
0.0 |
0.0 |
5.5 |
23.3 |
67.1 |
4.1 |
100 |
|
Ease getting on the bus |
0.0 |
0.0 |
2.7 |
28.8 |
61.6 |
6.8 |
100 |
|
Ease getting off the bus |
0.0 |
1.4 |
6.8 |
31.5 |
41.1 |
19.2 |
100 |
|
Accessibility features |
0.0 |
0.0 |
9.6 |
31.5 |
35.6 |
23.3 |
100 |
TRANSIT FLEET ACQUISITION STRATEGY
STRATÉGIE
D’ACQUISITION DE VÉHICULES DE TRANSPORT EN COMMUN
ACS2007-PTE-TRA-0009 CITY WIDE / À L'ÉCHELLE DE LA VILLE
Following
the discussion and disposition of the previous item, Councillor Wilkinson
inquired if the Committee had to move forward on Recommendations 1 and 2 of
this report, if it is not clear in what direction the City will be
heading. Alain Mercier, Director of
Transit Services advised that this report deals with two issues: the purchase of three double-decker buses
and the commencement of the procurement process for 40-foot buses. Should the Committee choose to review the
diesel-electric hybrid in September, he suggested it would make sense to hold
those particular recommendations.
However, staff would prefer to move forward with the acquisition of the
double-deckers in order to test these high capacity vehicles over the next
couple of years.
David
Jeanes, Transport 2000 suggested there be an indepth analysis of the
double-decker bus if the City is contemplating acquiring them for their
fleet. He provided the following
concerns related to these vehicles:
·
the plan for double-deckers assumes that the smaller
footprint for more seats will be a benefit in the central area, but this will
depend on the amount of time it will take to load and unload passengers,
particularly at busy bus stops, with multiple buses in line;
·
a double-decker has one less door than an
articulated bus, but carries more people;
·
with only one set of stairs leading to the top
floor, single-file bottlenecks can be created for the large majority of seats
upstairs; also, ascending and descending the stairs while the bus is moving may
be difficult;
·
double-decker buses are much heavier on the front
axle than an articulated bus and will cause more road damage; further, since
these vehicles are proposed to be used on suburb to downtown express routes,
they will be using residential streets causing further road damage; therefore,
they should operate on hub and spoke routes.
In his
closing remarks, Mr. Jeanes preferred that there would have been public
consultation on this issue so it could be dealt with properly.
In
response to a question posed by the Committee Chair, staff confirmed that they
would solicit feedback from users when the double-decker buses are in
operation.
In
response to questions posed by Councillor Leadman, Mr. Jeanes advised that he
had been unable to ride the double-decker when it was in Ottawa last year
because it had mechanical problems. He
added that the model proposed to be purchased is untested in extreme winter
conditions. When asked to comment on
the issue of comfort on these vehicles, the delegation remarked that the
ceiling of the upper deck is not high enough for some people and he would not
recommended that people stand on that level.
Responding
to a question put forward by Councillor Wilkinson, staff advised that the
double-decker buses would be assigned to high-frequency suburban Transitway and
express routes such as Routes 37, 61 and 96.
When asked if the City should choose not to purchase more double-decker
buses after a trial period, staff confirmed that one option is to sell them to
another transit system.
In
response to the comments made by the delegation, Mr. Mercier indicated that
they have to let all their customers speak.
They would apply their specifications for seating standards, et cetera
and he indicated that the trial bus used last year did not have all the
amenities required. He confirmed
double-deckers would allow the opportunity for more people to sit the entire
route. Pat Scrimgeour, Program Manager,
Service Planning added that there will be need a to convert more and more buses
that leave the downtown to high capacity vehicles and the problem with
articulated buses on the long trips is that while they are 50% longer and 50%
more expensive than the 40-foot buses, they do not have 50% more seats. The double-decker buses, at about the same
cost as articulated buses, provides many more seats. Therefore, the schedule could send fewer buses to carry the same
amount of people and take up less space on the road.
When asked
whether people will have to stand on the double-decker buses or whether they
will be expected to all have seats, Mr. Scrimgeour responded by stating it is
safe for people to stand anywhere on these buses but that it would not normally
be required that customers stand on the upper level. He agreed that head room is lower up top, but people would not be
prohibited from standing upstairs, should they have to. To respond to the issue of the driver seeing
passengers both upstairs and down, Mr. Mercier confirmed the driver would be
able to view all areas of these buses via cameras located on both levels.
Councillor
Bloess indicated that one of the unfactored costs to OC Transpo is the damage
to the road caused by buses. He
expressed amazement that, in light of the information on the impact these
vehicles would have vs. a regular bus, staff would recommend the appropriation
of such vehicles. Based on the
information provided to staff by the consultants, Mr. Scrimgeour explained that
the life of the pavement structure is shorter with this type of bus, if all trips
were made with double-decker buses.
However, fewer trips would be required because the double-decker carries
more passengers. Staff will continue
with the analysis. Mr. Mercier confirmed that maintenance costs for the
Transitway is factored into the budget for the transit system.
When asked
to comment on why Ottawa would want to acquire an untested type of bus, Mr.
Scrimgeour explained that the City would be the third transit agency in Canada
using these types of vehicles and would follow on the experience of BC Transit
in Victoria, B.C., and GO Transit in Toronto.
He explained that staff would like to test the maintenance and their
operation in an Ottawa climate of cold and snow.
That the Transit Committee recommend Council approve the bus
acquisition strategy for the next five years as described in this report and,
specifically:
1.
The commencement of the procurement process for 40-foot
buses in advance of actual approved budgets, as an exception to the
requirements of the Purchasing By‑law, with the stipulation that the RFP
document contain a clause stating that any award as a result of this
procurement process will be subject to the approval of budgetary funding by
City Council;
2.
The pre-commitment of $1.5 million authority from 2008
for the purchase of two 40‑foot pilot buses.
DEFERRED to 5 September, with A. Cullen dissenting
3. The purchase of three prototype
double-decker buses for delivery in 2008 and a reduction in the number of
articulated buses to be delivered in 2008 from 57 to 54.
CARRIED