1. A HEALTHY BYWARD MARKET

Un marché BY en santé

committee recommendations as amended

That Council approve:

a) Direct staff to explore the feasibility of changing the direction of traffic exiting the ByWard Parking Garage from south to north on William street towards Clarence street, thereby creating a large public space at the corner of York and William streets, which would serve as a gathering place for citizens and market patrons while improving the pedestrian circulation and reducing vehicle congestion, idling, and air pollutants;

i) That, should the above-noted redirection prove feasible, the sidewalk space on the east side of William Street, between York and Clarence streets, be maximized to improve pedestrian circulation;

b) Direct staff to enforce all relevant by-laws to ensure the sidewalks of the Market area are kept as unobstructed as possible by A-frame signs, newspaper boxes, display racks, etc. to improve and encourage pedestrian access and circulation;

i) That should the above prove successful for pedestrians, business operators, and patrons, further traffic reduction and pedestrian enhancing features be considered in the By-Ward Market area; and

c) Direct staff to report back to Committee and Council in one year’s time on progress achieved, and make recommendations for the future, in sufficient time for any required Capital expenditures in the 2010 Budget year.

Recommandations modifiées du comité

Que le Conseil approuve :

a) d’enjoindre le personnel d’étudier s’il est possible de faire en sorte que les véhicules qui sortent du stationnement à étages du marché By sur la rue William se dirigent vers le nord, c’est-à-dire vers la rue Clarence, plutôt que vers le sud, ce qui permettrait de créer un vaste espace public à l’angle des rues York et William, où les citoyens et les clients du marché pourraient se rencontrer, et ce qui améliorerait la circulation des piétons et réduirait la congestion, la marche au ralenti des moteurs et la pollution atmosphérique;

i) si le changement ci-dessus est possible, d’élargir au maximum le trottoir situé du côté est de la rue William, entre les rues York et Clarence, pour améliorer la circulation des piétons;

b) d’enjoindre le personnel d’appliquer tous les règlements pertinents pour que les trottoirs du secteur du marché demeurent le moins possible obstrués par des enseignes-chevalets, des boîtes à journaux, des présentoirs, etc. de manière à faciliter et à favoriser l’accès et la circulation des piétons;

i) si cette mesure est couronnée de succès en ce qui concerne les piétons, les exploitants d’établissements commerciaux et la clientèle, d’examiner la possibilité d’adopter d’autres mesures de réduction du trafic et d’amélioration de la circulation des piétons dans le secteur du marché By; et

c) d’enjoindre le personnel de faire rapport au Conseil dans un an quant aux progrès réalisés ainsi que de présenter des recommandations, et ce, dans un délai suffisant pour que toute dépense en immobilisations requise soit incluse dans l’année budgétaire 2010.

Documentation

1. Environmental Advisory Committee report dated 29 September 2008 (ACS2008-CCV-EAC-0006).

2. Extract of Draft Minute, 15 October 2008.

Report to/Rapport au :

Transportation Committee/

Comité des transports

and Council / et au Conseil

29 September 2008 / le 29 septembre 2008

Submitted by/Soumis par : Chair/Président, Environmental Advisory Committee/Comité consultatif sur l’environnement

Contact Person/Personne-ressource : Stephanie Brown Bellefeuille, Advisory Committee Coordinator/coordonnatrice de comité consultatif

City Clerk’s Branch/Direction du greffe

613-580-2424 x16760, stephanie.brown@ottawa.ca

Rideau-Vanier (12)

Ref N°: ACS2008-CCV-EAC-0006

SUBJECT:	A HEALTHY BYWARD MARKET

OBJET :	Un marché BY en santé

REPORT RECOMMENDATIONS

That the Environmental Advisory Committee recommend that the Transportation Committee recommend Council:

i) That, should the above-noted redirection prove feasible, the sidewalk space on the east side of William Street, between York and Clarence streets, be maximized to improve pedestrian circulation;

i) That should the above prove successful for pedestrians, business operators, and patrons, further traffic reduction and pedestrian enhancing features be considered in the By-Ward Market area; and

c) Direct staff to report back to Council in one year’s time on progress achieved, and make recommendations for the future.

RECOMMANDATIONS DU RAPPORT

Que le Comité consultatif sur l’environnement recommande au Comité des transports de recommander au Conseil:

i) si le changement ci-dessus est possible, d’élargir au maximum le trottoir situé du côté est de la rue William, entre les rues York et Clarence, pour améliorer la circulation des piétons;

c) d’enjoindre le personnel de faire rapport au Conseil dans un an quant aux progrès réalisés ainsi que de présenter des recommandations.

BACKGROUND

At its May 8, 2008 meeting, the Environmental Advisory Committee approved the following motion:

Whereas the By-Ward Market is an integral part of Ottawa’s cultural and commercial identity and was established as a public market and gathering place;

Whereas the Market is home to hundreds of Ottawa residents and can accommodate up to 175 outdoor stalls for vendors;

Whereas the commercial well-being of the By-Ward Market is of fundamental importance to the character of the City of Ottawa;

Whereas the large volume of vehicle traffic (especially trucks), in vicinity of the By-Ward Market, as well as poor pedestrian and cyclist access, currently discourage visits by citizens to the By-Market;

Whereas the By-Ward Market area is a high volume area for motor vehicles;

Whereas in 2005, the City of Ottawa contracted SENES Consultants Limited to carry out an inventory on air contaminants and greenhouse gas emissions for 2004;

Whereas this study informed that the transportation sector was the largest contributor of Particulate Matter of 10 microns in size, Nitric Oxides, Carbon Monoxide, and Volatile Organic Compounds in the City of Ottawa;

Whereas this study also informed that air pollution in Ottawa is most heavily concentrated in Ottawa’s Centre, the location of the By-Ward Market;

Whereas air pollution, much of it from motor vehicles, is estimated by the Ontario Medical Association to be responsible for 290 deaths and $18.3 million in lost productivity in Ottawa in 2005;

Whereas the likelihood of premature death increases by 2.5 years for people residing and working in areas of high volume traffic and emissions from idling vehicles;

Whereas the expansion of a pedestrian zone would increase the amount of space available for public gathering, shopping, festivals, commercial enterprises and decrease the negative health impacts on market vendors and residents;

Whereas these innovative improvements to the By-Ward Market will serve to maintain and enhance its competitive advantage by creating a unique commercial zone which favours community, clean air, and a strong business ethic;

Therefore, be it resolved that the EAC recommend:

a) That Council direct staff to explore the feasibility of changing the direction of traffic exiting the ByWard Parking Garage, from south to north on William street, towards Clarence street, thereby creating a large public space at the corner of York and William streets, that would serve as a gathering place for citizens and market patrons, while improving the pedestrian circulation, and reducing vehicle congestion, idling, and air pollutants;

b) Be it further resolved that should the redirecting of traffic prove to be feasible, that the sidewalk space on the east side of William, between York Clarence streets, be maximized to improve pedestrian circulation;

c) Be it further resolved that the EAC recommend that Council direct staff to enforce all relevant by-laws, to ensure that the sidewalks of the Market area are kept as unobstructed as possible by A-frame signs, newspaper boxes, display racks etc., to improve and encourage pedestrian access and circulation;

d) Be it further resolved that, should the above prove successful for pedestrians, business operators, and patrons, further traffic reduction and pedestrian enhancing features be considered in the By-Ward Market area.

e) BE IT FURTHER RESOLVED THAT staff be directed to report in one year’s time to Council on progress achieved, and make recommendations for the future.

DISCUSSION

Air quality and global warming are consistent themes of discussion at the table of the Environmental Advisory Committee. To this end, the EAC has helped move forward key cleaner-air initiatives, including the Idling Control By-Law; and now recommendations for an increased pedestrian-friendly Byward Market as a means to “improve pedestrian circulation, access, and to reduce vehicular congestion, idling, and release of air pollutants”.

These recommendations intend a greater good (improved air quality) for not only the benefit of market vendors, patrons and residents, but also to the City as a whole. The recommendations in the motion you see today stem from, not only an earlier version of the motion that was subsequently and ardently consulted on with shareholders, whose input was included, but also stems from the aforementioned 2005 SENES Consultants report.

With vehicle emissions forming the leading cause of 82% of total Canadian emissions in 2004 (not to mention Ontario being one of 2 highest greenhouse gas emitters in the entire country), large urban centres, such as the Byward Market, both a home and popular business locale for many, are of primary focus.

CONSULTATION

Community and Protective Services

Ottawa Public Health

The Ontario Medical Association has recently updated their Illness Cost of Air Pollution Model (ICAP) statistics from those cited in the EAC report. The number of premature smog related deaths for Ottawa is estimated to be 503 in 2008, and 9,500 across Ontario (an increase from ICAP's estimated 290 premature smog related deaths for Ottawa in 2005, due in part to a change in methodology used, and in part to an increased burden). Ottawa Public Health is supportive of initiatives that aim to reduce air pollution, especially in areas where people congregate. For these reasons, we would welcome more detailed information being provided about air pollution and traffic congestion at this location. We suggest that the City's newly acquired mobile air quality monitor be set up in the vicinity to obtain air quality data that can be used to compliment the traffic analysis.

By-Law and Regulatory Services

The By-law and Regulatory Services Branch will continue to work in partnership with the Traffic and Parking Operations Branch to address violations of the Signs on City Roads By-law, the Use and Care of Roads By-law and the Encroachment By-law, as appropriate, in the ByWard Market area.

Public Works and Services

Recommendation a)

The first recommendation of the EAC motion is to explore the feasibility of changing direction of traffic on William Street between York Street and Clarence Street (from southbound to northbound). It is assumed that the remaining wording of Recommendation (a) is suggesting closure from the parking garage exit to York Street to create a pedestrian space.

Traffic is only one consideration that needs to be looked at in response to this motion. The analysis should be to determine the level of support from area businesses, and especially the businesses on this section of William Street. If there is support for this initiative, then a traffic analysis and other analyses (business, air quality, etc.) would need to be undertaken as a component of such a study to determine the specific options, advantages, and disadvantages.

The traffic analysis component of such a study would need to consider impacts on:

pedestrian space and circulation;
vending space;
loading zones;
access/egress to/from the ByWard Garage;
on-street parking;
traffic circulation,
sight lines at intersections, etc.

While Recommendation a) suggests changing the direction of traffic from southbound to northbound, there are several options, each with different issues, advantages, and disadvantages, including:

Reversing the direction of travel, keeping the road open to traffic;
Reversing the direction of travel and closing the road south of the garage exit; or
Converting the road to two-way traffic south of Clarence Street, and closing the road south of the garage exit.

The closure and creation of a new pedestrian area would likely have positive benefits for pedesterian circulation in the area. Also, the re-directing of vehicles exiting the parking garage northbound (instead of the current southbound) will likely improve the vehicular and pedestrian circulation at York Street – and would also create the potential for new public space at York & William.

Concerning traffic circulation, the analysis will need to look at several options and factors, some of which are:

The conversion of William Street to one way, northbound, will limit southbound traffic movements between Clarence and York to Dalhousie Street. Additional travel distance resulting from this may offset any environmental benefits.
If William Street were to be converted to a pedestrian area south of the garage exit, there would not be any access to the existing loading dock (which is also used for garbage and snow removal), and
Access to the existing on-street metered parking spaces along William Street may be affected.

A review of the existing road would need to be undertaken to determine the extent of modifications that may be required. For example, the corners at William Street and Clarence Street may need to be modified to accommodate northbound turning vehicles, such as delivery trucks, garbage trucks, etc., that may be exiting from the loading dock in the ByWard garage.

Recommendation a(i)

There is currently metered parking on the west side of William Street between Clarence Street and the exit from the parking garage. Due to the available street width, a choice may need to be made between widening of the existing sidewalk and retaining the existing on-street parking. This would need to be determined as part of a future detailed road design review.

Recommendation b)

Traffic and Parking Operations Branch is responsible for the enforcement of vending/newspaper box locations. If a complaint from the public is received or one of the Traffic Management Inspectors see a box in an inappropriate location, the inspector will investigate and if required request that the box be moved to an appropriate location by the box owners. If the owner does not comply with the request, the inspector will have the box (es) removed at the owners expense.

Recommendations b(i) and c)

As indicated above, traffic is only one consideration that needs to be looked at in response to this motion. The analysis should be to determine the level of support from area businesses, and especially the businesses on this section of William Street.

Public Works and Services - Summary

There is currently no capacity within PWS to undertake the required public consultation, traffic analysis, and functional design. If directed by Council, PWS staff could bring forward this study as a potential project for consideration within the 2009 work program. It is estimated that the traffic analysis and public consultation process could cost about $50,000. Funding for construction of any roadway modifications recommended though this study would need to be identified in future Capital Budgets.

Planning, Transit and the Environment

The Planning, Transit and the Environment Department believes that the intention of the Environmental Advisory Committee motion is twofold - the initiative would both improve the environment through the more efficient movement of pedestrians and traffic within the area, and secondly, stimulate economic development through the creation of new public space.

In order to undertake an assessment of the economic impacts to the local businesses as a result of these proposed traffic changes, staff would recommend that that consultations be undertaken with the Downtown Rideau BIA and the Byward Market BIA as well as other impacted businesses by an economic consultant. Furthermore it is anticipated that environmental modelling would also need to be undertaken to gauge whether there are any air quality improvements made as a result of the proposed changes. As such staff would recommend an additional $10,000 for this work to be undertaken.

FINANCIAL IMPLICATIONS

PTE

(See last paragraph in PTE comment above)

PWS

The 2009 Public Works and Service Traffic & Parking Operations Draft Capital Budget does not provide for funding for the Study. Council direction would be needed to add this to the 2009 Draft Strategic Initiative Capital Budget for consideration.

Further if the study proceeds any proposed construction of any roadway modifications recommended though this study would need to be identified in future Capital Budgets as well as any associated operating impacts to Traffic & Parking Operations and the Surface Operations Branches.

SUPPORTING DOCUMENTATION

N/A

DISPOSITION

That staff carry out the directives of Council on this item.

A HEALTHY BYWARD MARKET

Un marché BY en santé

ACS2008-CCV-EAC-0006 RIDEAU-VANIER (12)

Patrick Quealey, Environmental Advisory Committee presented their report. The more salient points noted were as follows:

· The By-ward market is an integral part of Ottawa’s cultural and commercial identity; it is of fundamental importance to the character of the city; however, it also suffers from a high volume of traffic and air pollution, the latter of which (according to the Ontario Medical Association) was responsible for $18.3M in lost productivity in Ottawa in 2005; the number of premature deaths for Ottawa is estimated by the OMA to be 503 in 2008, up from 290 in 2005

· The intent of their recommendations is to expand the pedestrian space to improve air quality, reduce greenhouse gas emissions and to improve the social aspects of the Market, while enhancing its commercial potential

· The EAC believes that an expansion of pedestrian areas in the Market would increase the amount of space available for public gatherings, shopping, festivals, commercial enterprises and decrease the negative health impacts of localized air pollution on market vendors, residents, and visitors

· The EAC further believes that their proposal will assist the City to encourage more pedestrians and cyclists into the market which should relieve some stress on parking demand while improving air quality

In closing, Mr. Quealey explained that the purpose of this report is not to cause economic hardship to the businesses in the market, nor to inconvenience its residents and consumers, but to improve the market experience for all, maintaining and enhancing the Market’s competitive advantage through creating a unique commercial zone which favours community, clean air, and a strong business ethic. A copy of his written submission is held on file. Also held on file are letters of support dated 12 February 2008 from Ecology Ottawa and the Lowertown Community Association.

Jasna Jennings, ByWard Market BIA indicated her support for the EAC report and unless there were questions of her, declined her opportunity to speak further.

Rob Orchin, Manager, Mobility and Area Traffic Management, Troy Leeson, Manager, Parking Enforcement and Philip Powell, Markets Manager (ByWard and Parkdale) were present to address any questions posed by Committee members.

If approved, Councillor Wilkinson asked what impact the recommendations would have if there were no accompanying budget to undertake the necessary work. Mr. Orchin explained that one of the challenges was how this would be implemented in the department’s work program. Staff has identified $50,000, which is required to do a traffic study and would have to be included in the 2009 budget as a Strategic Initiative. The councillor noted an additional $10,000 for environmental modelling and Richard Kilstrom, Manager, Community Planning and Design indicated that amount would come from the Planning department and suggested that if the Committee was going to approve the report recommendation, it would be better if the total amount was $60,000 to reflect the two amounts.

Councillor Wilkinson found it difficult to vote on this item without getting it through the budget process. She agreed what is being recommended would be an improvement, but wondered what project might have to be given up if this is approved. She suggested the report be approved in principle and forward it as a Strategic Initiative budget pressure. Steve Kanellakos, Deputy City Manager, City Operations confirmed that staff could take it as direction to add it to the Strategic Initiatives but the final decision does not get made until Council considers the entire Strategic Initiatives envelope.

Councillor Wilkinson wondered if there was any funding to do a preliminary review, which would help councillors determine whether or not they wanted to go further on it. Mike Flainek, Director of Traffic and Parking Operations Branch explained that this initiative is unique and does not fit into any of the Council-approved programs currently run in the branch. The total funding required ($60,000) will give staff a good understanding, once they understand what the design would be and how temporary or permanent it would be, then staff can look at providing Council with indication of whether or not it can be built under an existing program and what that design might cost.

Councillor Wilkinson explained that she does not consider it to be primarily a traffic issue, but more of a planning issue and, following further discussion on the matter, proposed the following:

That the Healthy ByWard Market report be forwarded to the Planning and Environment Committee for input into the process.

Speaking to referral, Councillor Cullen stated that this Committee has the authority to deal with these matters and would not support the Motion. Councillor Bédard added that the Chair of the Planning and Environment Committee was made aware of the EAC report and suggested that it was not an item for his Committee. He reminded members that the ByWard Market is a unique area and has it’s own management, which looks at all of these things and talks to all the other departments and makes it’s recommendation and he did not support referring this matter when it has been dealt with by so many other services and departments in the corporate structure.

Councillor Wilkinson agreed there is a need to look at the whole ByWard Market and make it a better place and she did not want to do it in piecemeal fashion. She withdrew her Motion.

Councillor Legendre suggested strengthening Recommendation (c) by requiring that staff bring forward a report next year in time for the budget, to ensure the EAC recommendations can be moved forward. Staff and the ward councillor supported this amendment.

Moved by J. Legendre

That Recommendation c) be strengthened and clarified by requiring that staff report to Committee and Council in sufficient time for any required Capital expenditures in the 2010 Budget year.

CARRIED