Report to/Rapport au :

 

Transportation Committee

Comité des transports

 

5 June 2006 / le 5 juin 2006

 

Submitted by/Soumis par: R.G. Hewitt,

Acting Deputy City Manager/Directeur municipal adjoint par intérim,

Public Works and Services/Services et Travaux publics 

 

Contact Person/Personne ressource:

Gary J. Craig, Manager/Gestionnaire,

Strategic Initiatives and Business Planning/Initiatives stratégiques et planification opérationnelle

613-580-2424 ext. 19037, gary.craig@ottawa.ca

 

City Wide

Ref N°: ACS2006-PWS-DCM-0001

 

 

SUBJECT:

TASK FORCE ON DECEMBER 16, 2005 SNOWSTORM IMPACT ON TRANSIT SERVICE

 

 

OBJET:

GROUPE DE TRAVAIL SUR L’IMPACT DE LA TEMPÊTE DE NEIGE DU 16 DÉCEMBRE 2005 SUR LES TRANSPORTS EN COMMUN

 

 

REPORT RECOMMENDATION

 

That Transportation Committee receive this report for information.

 

 

RECOMMANDATION DU RAPPORT

 

Que le Comité des transports reçoive le présent rapport à titre d’information.

 

 

EXECUTIVE SUMMARY

 

At the January 18, 2006 meeting of the Transportation Committee, Department of Public Works and Services (PWS) staff provided a verbal report on the Impact of the December 16, 2005 Snow Fall Event on Transit Services.  As part of the Department’s presentation, the Deputy City Manager indicated he would establish a Task Force to further review the Department’s response to this storm event.  Committee directed the Task Force to address a number of issues/concerns identified by Committee members and report back by June 2006. 

 

The report documents the operational improvements made based on lessons learned as a result of the circumstances that occurred during the event.  It discusses how the Department will adopt an incident management approach to future severe winter storm events utilizing a command center at the Traffic Control Centre on Loretta Avenue where senior operational staff will be located to ensure an effective and coordinated response.  It also provides responses to the issues/concerns identified by Committee that were to be addressed by the Task Force.

 

To improve the Department’s ability to ensure reliable transit service on the Transitway it is recommended that the Department’s 2007 Capital Budget identify funding for 20 additional CCTV cameras to be installed in a phased approach at key road intersections along the Transitway at an estimated cost of $800,000.  It is also recommended that the Department’s 2007 Capital Budget identify funding for one additional salt vehicle at an estimated cost of $240,000, to provide winter abrasives at various critical locations throughout the network and thus improving driving conditions for transit vehicles.

 

The Task Force consisted of staff from the Surface Operations, Transit Services, Fleet Services, and Traffic and Parking Operations Branches in the Public Works and Services Department as well as Real Property Asset Management in the Corporate Services Department and Ottawa Police Services.  Public consultation did not occur as the Task Force was formed to review improvements in Branch operations, to ensure optimal coordination and communications and to develop comprehensive plans/actions to ensure reliable transit service during snow events.

 

 

RÉSUMÉ

 

Lors de la réunion du 18 janvier 2006 du Comité des transports, le personnel de Services et travaux publics (STP) a présenté un rapport verbal sur l’impact de la tempête de neige du 16 décembre 2005 sur le transport en commun. Lors de l’exposé des Services, le directeur municipal adjoint a indiqué qu’il désirait mettre en place un comité avec le mandat d’examiner plus attentivement l’intervention de Services et travaux publics dans ces circonstances. Le Comité a demandé au groupe de travail de se pencher sur un certain nombre de questions/préoccupations de ses membres et d’en faire rapport en juin 2006. 

 

Ce rapport fait état des améliorations opérationnelles tirées des leçons apprises lors des événements entourant cette tempête. On y analyse l’approche de la gestion des incidents que Services et travaux publics entendait adopter pour faire face aux prochaines tempêtes hivernales importantes en installant un centre de commandement au Centre de régulation de la circulation de l’avenue Loretta, d’où des cadres opérationnels pourront assurer une intervention efficace et coordonnée. Le rapport fournit également des réponses aux questions/préoccupations des membres du Comité confiées au groupe de travail.

 

Pour améliorer la capacité de Services et travaux publics de garantir la fiabilité du service de transport en commun sur le Transitway, on recommande de prévoir dans le budget des immobilisations de 2007 de Services et travaux publics l’achat de 20 caméras TVCF, que l’on installera progressivement aux principales intersections du Transitway pour un montant estimatif de 800 000 $. On recommande également que le budget des immobilisations de Services et travaux publics prévoie le financement d’une saleuse au coût estimatif de 250 000 $, afin de répandre des abrasifs l’hiver à divers points critiques dans l’ensemble du réseau et d’améliorer ainsi les conditions de circulation des véhicules de transport en commun.

 

Le groupe de travail comprenait du personnel des services des opérations de surface, du transport en commun, du parc automobile et de la circulation et du stationnement de Services et travaux publics, ainsi que du service de gestion des actifs et des biens immobiliers des Services généraux et du Service de police d’Ottawa. Il n’y a pas eu de consultation publique, le mandat du groupe de travail étant d’examiner les améliorations opérationnelles des Services pour assurer la meilleure coordination et les meilleures communications possibles, et d’élaborer des plans ou de prendre des mesures d’ensemble pour assurer un service de transport en commun fiable pendant les tempêtes de neige.

 

 

BACKGROUND

 

At the January 18, 2006 meeting of the Transportation Committee, Department of Public Works and Services (PWS) staff provided a verbal report on the Impact of the December 16, 2005 Snow Fall Event on Transit Services.  As part of the Department’s presentation, the Deputy City Manager indicated he would establish a Task Force to further review the Department’s response to this storm event.  Committee directed the Task Force to address a number of issues/concerns identified by Committee members and report back by June 2006. 

 

As a precursor to the Task Force report, staff followed up the January 18, 2006 verbal report with the Impact of December 16, 2005 Snow Fall Event on Transit Services – IPD that was distributed on January 30, 2006 and included on the Transportation Committee agenda on February 15, 2006.  The IPD is attached as Document 1.

 

This report documents the results of the Task Force review that was aimed at:

 

  1. Refining the improvements already implemented immediately following the December 16, 2005 snow event;
  2. Ensuring optimal coordination and communications across the respective service areas involved in responding to such snow events; and,
  3. Identifying where comprehensive plans/actions were needed to ensure the reliability of transit service during severe winter storms.

 

 

DISCUSSION

 

The following sections identify the actions taken since the event as well as improvements to be undertaken to ensure the reliability of transit service in severe winter weather conditions.


 

Operational Improvements Undertaken since the December 16, 2005 Snow Event

 

Prior to the presentation to Committee on January 18, 2006 and subsequently, a number of improvements had already been made by staff in Surface Operations and Transit Services to assist on-street transit service during future winter storms of this intensity.  The major improvements included:

·        an additional salt spreader filled with winter abrasives assigned to the downtown core providing temporary traction at various locations;

·        for weather events that have the potential to affect transit service, co-location of a staff member from each of Surface Operations, and Transit Services with Traffic & Parking Operations staff at the Traffic Control Centre (TCC) on Loretta Avenue to enhance communications directly to staff in the field.  Additional staff from Fire, Paramedics, Police, etc., are contacted and attend as warranted;

·        clarifying operational procedures between snow clearing operations and bus operators at Transitway Stations;

·        enhancements to the annual “Safe Winter Driving Campaign” refresher training which assists new bus operators facing their first winter of operations and provides a reminder of good winter driving habits to all bus operators; and ,

·        enhanced communications between front-line staff within the various Branches.

 

Coordination of Branch Responses

 

Following a review of the circumstances of this event and the Department’s response to it, the Task Force identified additional improvements to ensure optimal coordination across the respective service areas involved in responding to such snow events.  Specifically, the Task Force identified the following actions/plans for improvement.

 

  1. A central location from which to manage the incident and to ensure a coordinated response.

 

As four of the Department’s six branches were directly involved in this event, a central location to manage the response to future events is required.  The location best suited to serve as a command centre is the TCC on Loretta Avenue.  This location was used to a limited degree on December 16, 2005 and more extensively for the February 17, 2006 storm event.  It is used for non-weather related events that involve road closures such as the recent Farm protests, Presidential visits, G8 meetings, etc.

 

Having senior operational staff from all the Branches together in one location sharing the same information about the circumstances as they are unfolding will improve the decision making to ensure an effective and coordinated response and minimize the impact on the public.

 

The TCC allows staff to manage traffic flow on the transportation network by adjusting signal timings on the traffic control signals as well as offering the ability to view activity on the roadway network utilizing the City’s 62 traffic cameras.  Quick decisions can be made to undertake alternative traffic flow strategies to get around roadway blockages or queues and maintain transit service.  For example, in reviewing the events, the impact of blocked buses on the eastbound Transitway at Booth Street could have possibly been minimized by re-routing onto the westbound Transitway.  Actions such as these can only be undertaken in a coordinated effort with staff from Traffic and Parking Operations, Transit Services and the Police.

 

To ensure staff at the TCC can operate effectively, additional traffic cameras at key locations along the Transitway and roadway system will be required to assist the decision-making.  Traffic & Parking Operations staff has identified 20 locations along the Transitway where cameras would improve operational knowledge.

 

2.      Alignment of Response Protocols to the Department’s and the Branches’ Emergency Response Plans.

 

The Department of Public Works and Services (PWS) is in the process of updating its existing Departmental and Branch Emergency Response Plans.  An important aspect of these updates will be a new emphasis on incident management and will involve re-branding them as Incident Escalation and Response Plans.  The intention of this change is to reinforce the “no surprises” philosophy to staff throughout the Department and to emphasize the requirement to escalate incidents up the chain of command.  This will enhance the Department’s ability to ensure an appropriate and coordinated departmental and corporate response as circumstances warrant.

 

In the case of forecasted extraordinary weather events that may warrant proactive coordination across service areas, a decision will be made at the Director or Deputy City Manager level to activate a Departmental incident management team.

 

Ottawa Police Services (OPS) Involvement

 

Current practice is that senior Surface Operations staff contacts senior OPS staff to advise them when severe weather is predicted or as changes occur.

 

In response to a question at Committee, we have confirmed that staff at the TCC were in contact with OPS during the storm on December 16, 2005.  However they were not requested to provide point duty at Booth Street and the Transitway.  In the future, staff of the TCC will contact them when weather conditions are predicted to cause or are causing traffic conditions to warrant an incident management response.

 

When OPS is notified a proven process will be activated, that has been utilized during the major storm event on February 17, 2006, Highway 417 and bridge closures.  This process will assist with managing traffic issues during the unplanned incident. A police officer will attend at the TCC to coordinate OPS response with other City Departments.  Having an OPS officer present has proven to improve Police response times and ensures coordination with other City Departments.

 

Real Property Asset Management (RPAM) Involvement

 

RPAM staff undertakes snow clearing of the platforms at Transitway Stations.  Although the activities on December 16, 2005 did not identify any problems, we have reinforced and confirmed with RPAM the issues that need to be coordinated with them for similar events in the future.

 

The following sections address the issues/concerns identified by Committee that were to be addressed by the Task Force.

 

Articulated Buses Operation in Snow

 

On December 16, 2005, the majority of buses that became stuck during this event were articulated.  In particular, jackknifing of articulated buses was a problem.  Committee members questioned if their design hindered their ability to function in heavy snow.

 

Fleet Services has been working, since December 2005, with the bus and articulation joint manufacturers to implement changes that will improve the performance of Ottawa articulated buses in heavy snow.  The D60LF articulated bus is manufactured by New Flyer Industries of Winnipeg; the articulation joint is manufactured by Hubner AG in Germany.  The joint manufacturer is researching computer program changes to increase the amount of dampening in the joint.  The joint uses computer controlled hydraulic actuators to control the performance of the joint and limit the tendency to jack-knife.  The objective is to increase the stiffness of the articulation joint under low traction conditions to further resist jack-knifing.  Results of the research are expected by mid-year 2006.

 

In addition to increasing the stiffness of the joint, improvements to heavy snow operation are expected as a result of reducing the amount of articulation permitted in the joint.  By limiting the maximum amount of bend in the bus performance while negotiating turns in slippery conditions will improve.  For the D60LF buses, the maximum turning angle is being reduced from 42 to 37 degrees under a retrofit program that will place no operational limitation on transit services.  The retrofit program was initiated on February 6, 2006.  Once implemented across the articulated bus fleet, expected to be by year-end, these reductions should assist in keeping buses in line in similar conditions experienced on December 16, 2005. 

 

Bus Driver Training

 

Currently, Bus Operators (Drivers) receive training and awareness concerning winter operations via (1) their initial pre-hire New Operator Training Program and (2) a Safe Winter Driving Campaign conducted each Fall. 

 

Sessions of the New Bus Operator Training Program take place throughout the year.  This comprehensive six week training program consists of both classroom and practical components and includes information specific to the handling characteristics and features of the articulated buses and for driving in inclement weather.  Naturally, only those trainees trained during the winter months have practical exposure to winter driving conditions in their training environment. 

 

The Safe Winter Driving Campaign is conducted each fall and involves information kiosks located at each of the three garages staffed by Relief Instructors. The objective of the campaign is to assist new Bus Operators facing their first winter of operations and also to provide a reminder of good winter driving habits to all Bus Operators.  Typically, a different winter driving theme is emphasized each year. 

 

In support of a multi-faceted approach to improving winter operations, the Operational Training Section has committed to continual improvement of its programs.  With respect to the New Operator Training Program, for all new Bus Operators that have not received practical instruction during winter operations, a new program will be developed and delivered each Fall.  It is anticipated that this will be a three to four hour program and will be incorporated within the umbrella of the annual Safe Winter Driving Campaign.  The campaign itself will be modified to include a core component in addition to an annual theme.  The core component will be dedicated to the specific handling characteristics and features of the articulated buses. 

 

In addition to the annual training, the Transit Control Centre can issue an “alert” to all buses of specific changing operating conditions.  In response to the circumstances on December 16, 2005, when snow begins to accumulate to a point where ploughing is necessary and windrows of snow prevent convenient passenger pick-ups/drop-offs at the station’s curb, an announcement will be made reminding drivers not to endeavour to travel through these windrows.

 

Snow Tires for Buses

 

Transportation Committee directed that winter tire investigations be undertaken and trials conducted.  As previously reported there are no “snow tires” for transit bus applications, however, there are options that might increase the performance of all-season tires in winter conditions.  Fleet Services will undertake a trial of tires during the 2006/2007 winter season to identify these options and quantify the performance increase.  It is expected these trials will be conducted by an appropriate testing organization such as the National Research Council Centre for Surface Transportation Technology.  The results of the trial will be communicated back to Committee after the evaluation has taken place.

 

Review of Possible Technical Improvements to Bus Specifications

 

Winter handling will be a part of the rating criteria when the technical specifications are prepared for the next bus acquisition that will be started in 2006 for the 2008 service requirements.  The bus specification has an essential requirement for meeting Ottawa environmental conditions as it relates to ambient temperature, precipitation (rain and snow) and relative humidity.  The evaluation will be based on data obtained from Environment Canada Research staff.

 

Alteration of Bus Re-Assignments

 

It was suggested that under severe winter weather events the use of articulated buses be minimized.  Bus Reassignment (substituting 60’ articulated with 40’ standard), is only practical during off-peak, evening hours and on weekends.  This is specific to times when spare 40’ vehicles are available and passenger loads are not a major concern.  Clearly such changes could not be implemented without sufficient advance notice of severe weather conditions.  In such cases it could be possible to co-ordinate changing the assignment of articulated buses with standard 40’ buses to Bus Operators at their report time at the garages.  It would be less practical and also be much more challenging when 60’ articulated buses were already on street and in-service and therefore change-offs would be required in a co-ordinated effort with Fleet Services, and Transit Services.  During the storm on December 16, 2005, the buses were already on the road when the storm’s intensity changed resulting in rapidly deteriorating road conditions.

 

Advanced Planning and Early Alerts

 

Surface Operations staff monitor weather forecast during winter months on a regular basis.  They are providing a daily weather watch to Transit Services, Traffic and Parking Operations, Fleet Services, RPAM and OPS via email.  The distribution of forecasted weather reports to the various stakeholders will allow preparation of equipment and staff in advance of the expected storm.  This improvement in early communications has proven to be invaluable since it was put into place immediately following the December 16th storm.

 

Towing / Recovery Services

 

The City has a contract in place that provides private towing services from one primary contractor and two backups.  A minimum of three and a maximum of 12 large trucks are at our disposal through this contract.  The City also owns and operates two large tow trucks capable of handling both 40’ and 60’ buses. 

 

Vehicle recovery is coordinated by the duty Maintenance Supervisor responding to requests from the Transit Operations Control Centre.  Responsiveness is key to avoiding traffic backups caused by stuck vehicles on roadways.  To ensure this, when forecasts indicate, resources will be alerted and may be positioned to expedite operations.

 

Pedestrian Access at Bus Stops

 

Surface Operations snow and ice control activities affecting pedestrian accessibility at Bus Stops and other areas are governed by established and approved Winter Maintenance Quality Standards.

 

Maintaining a functioning transportation network is the first priority of snow and ice control.  Snow ploughing, salt spreading, and grit application are performed.  An unavoidable result of ploughing is the formation of snow windrows along the edge of the roadway.  These windrows can create a temporary impediment to pedestrian access at bus stops until they are removed. 

 

With respect to sidewalk snow ploughing, aside from sidewalks in the Market Area, Elgin, Bank, Albert, Slater, Westboro, etc., (Class 1 sidewalks) which are ploughed within 4 hours, all sidewalks in the urban core as well as sidewalks along transit routes (Class 2 sidewalks) are ploughed within 12 hours after the end of the storm.  Note, however, sidewalks within this class (Class 2) are further serviced in priority as "mains" or sidewalks adjacent to arterials and collectors and "residentials" where possible.

 

The very next 12 hour shift this equipment clears snow windrows from in front of bus stops for the length of a bus.  Occasionally, during this 2nd shift after the cessation of the storm, the windrow is removed completely if there is enough snow to warrant an entire arterial road snow removal operation.  For bus stops along sidewalks without separate bus pads, sidewalk equipment is typically used.  For bus stops along sidewalks that have large boulevards, equipment with buckets (i.e. a front end loader or a back hoe) must be used.  Again, this must be done after roadway and sidewalk ploughing as, during the first 12 hour period after a storm all equipment is fully utilized; sidewalk ploughs are ploughing sidewalks and front end loaders are cleaning community centres then ploughing snow from dead-ends and cul-de-sacs.

 

In summary, during the first 12 hours after the cessation of a storm all available city and contractor equipment are ploughing roads and sidewalks clear of snow; the very next 12 hours the same staff and mostly the same equipment and contractors are clearing snow from bus stops (i.e. within the 24 hour service window allotted in the Quality Standards).

 

Communications

 

Currently, the TCC utilizes the City of Ottawa’s 800MHz radio system while the Transit Operations Control Room utilizes a different radio system.  This incompatibility will be addressed when the Transit Operations Control Centre is replaced in 2009 as part of the Light Rail project.  In the interim, the Transit Supervisor who is co-located at the TCC will be supplied with a Transit portable radio. 

 

Coordination with Gatineau

 

As a result of many Ottawa buses being stuck in Gatineau at the intersection of Eddy and Taché, improved communications between staff of Ottawa and Gatineau would ensure coordinated response to service problems as they arise.  Contact has been made with respective authorities in Gatineau that has opened the lines of communication.   Improvements that have been identified include:

·        Gatineau public works staff have agreed to increase the priority of the Taché and Eddy location including the use of abrasives during the more intense storms;

·        we are working on operations plans to coordinate our respective activities; and,

·        we are working to gain access to a real time image from the traffic camera at the intersection of Taché and Eddy.

 

 

CONSULTATION

 

The Task Force consisted of staff from the Surface Operations, Transit Services, Fleet Services, and Traffic and Parking Operations Branches in the Public Works and Services Department as well as Real Property Asset Management in the Corporate Services Department and Ottawa Police Services.  Public consultation did not occur as the Task Force was formed to review improvements in Branch operations, to ensure optimal coordination and communications and to develop comprehensive plans/actions to ensure reliable transit service during snow events.

 

 

FINANCIAL IMPLICATIONS

 

The estimated cost of additional cameras for key intersections along Transitway is estimated to be $800,000.  This item will be included in the Department’s 2007 Capital Budget submission. The ability to phase in the cost will be reviewed during formulation of the budget.

 

Providing winter abrasives through the use of a dedicated salt spreader at various critical locations throughout the network to improve transit driving conditions results in an overall reduction of one salter to the current compliment dedicated to achieving approved standards.  To continue with this service, the Department will need to add one additional salter to its compliment at an estimated cost of $240,000.  This estimate will be added to the Department’s 2007 Capital Fleet acquisition request.

 

 

DISPOSITION

 

Fleet Services staff will conduct the snow tire trial in the winter 2006/2007 and report the results to Transportation Committee in Spring 2007.

 

Written procedures are being prepared to document the procedures noted in this report that will be distributed to all applicable Branches.

 

 

SUPPORTING DOCUMENTATON

 

Document 1:     Memo – Impact of December 16, 2005 Snow Fall Event on Transit Services –

January 30, 2006.


Document 1

 

 

M E M O   /   N O T E   D E   S E R V I C E

 

 


To / Destinataire

Chair and Members of Transportation Committee/Président et members du Comité des transports

File/N° de fichier: 

ACS2006-PWS-TRN-0001-IPD

From / Expéditeur

Acting Deputy City Manager/Directeur municipal adjoint intérimaire,

Public Works and Services/Services et Travaux publics

Contact / personne-ressource :

H. Gault   842-3636 ext. 2435

Helen.Gault@ottawa.ca

 

Subject / Objet

Impact of December 16, 2005 Snow Fall Event on Transit Services / Impact de l'incident de la chute de neige du 16 décembre 2005 sur les services de transport en commun

Date:     30 January 2006/

             le 30 janvier 2006

 

 


BACKGROUND

 

On Friday, December 16, 2005, a snowstorm struck Ottawa with an intense level of precipitation just at the start and through the morning rush hour.  Bus service, particularly on the Transitway, was severely affected, resulting in many transit customers experiencing very long delays getting to their destination.

 

Staff from Surface Operations, Traffic Operations, Fleet Services, Transit Services and Real Property and Asset Management have reviewed what happened to determine how the negative impact of the storm could have been reduced.

 

The purpose of this memorandum is to document the verbal presentation made to Transportation Committee on 18 January 2006.  Information that was requested at that meeting has been incorporated into this memorandum.

 

 

DISCUSSION

 

The Weather on Friday, December 16, 2005

 

On Friday, December 16, 2005, the City of Ottawa experienced a significant snowstorm that resulted in an accumulation of 24 centimetres of snow being deposited over a twelve-hour duration, approximately 11 p.m. through 11 a.m.  While a storm of this magnitude is in itself sufficient to cause some disruption, there were aspects of this particular occurrence which were highly unusual. 

Environment Canada has advised that at 5:00 a.m. on December 16, there were four centimetres of snow down which had fallen at a rate of less than one centimetre per hour.  However, between 5:00 a.m. and 7:00 a.m. another 10 centimetres fell at a rate of 5 centimetres per hour.  The remaining 10 centimetres fell over the next four hours at a rate of approximately 2.5 centimetres per hour.

 

The weather forecast was for heavy snowfall rates in the 2.5 to 3 centimetres per hour range.  However, for a two hour period at the start of the morning rush hour the snowfall rate that was received was double what is considered a heavy snowfall rate and double that which was forecast even that very morning.

 

Past experience in managing winter storms and discussions with Environment Canada staff have defined a snowfall rate of 2 to 2.5 centimetres per hour as being considered a heavy snowfall rate so to have 10 centimetres fall within two hours is very unusual.  The last severe storm in Ottawa previous to the December 16 storm was in December 2004, when 20 centimetres of snow fell over a period of 24 hours.

 

Vehicular Traffic

 

Traffic volumes are typically lower on a Friday and due to the forecasted snow storm, some motorists may have adjusted their travel times to miss the peak hour.  During the snow storm, traffic conditions were quite variable.  At many major intersections, traffic was waiting numerous traffic signal cycles to clear the intersection, while at some, the queues were often clearing on the cycle of arrival.

 

Traffic Signal Control Systems

 

The computerized traffic signal system controls and monitors 866 of 1004 signalized intersections in the City of Ottawa.  As well, 62 traffic cameras located throughout the City bring back live video to the Traffic Control Centre.  This allows traffic system operators to monitor live traffic conditions and make traffic signal timing adjustments as needed to improve traffic flow and minimize delays.

 

On days when snow conditions are expected, the signal timing schedule is changed for the majority of traffic signals on the traffic signal control system.  This may include longer greens or left-turn arrows for critical traffic movements, as well as expanding the duration that peak hour timing is in effect.  Peak hour timing is implemented earlier in the day and is maintained beyond a typical end of rush hour.  At over 300 locations with newer traffic control hardware/software and detectors, the “gap time” that is typically used to decide when to best terminate a green signal is increased in response to the slower speeds experienced by vehicles approaching the intersection.  This causes the signal to stay green longer than normal.  For example, on major corridors running parallel to the Queensway, such as Baseline and Carling, traffic was particularly heavy and traffic signal timing changes were made in response to this.

 

Surface Operations Storm Response

 

A snow storm of this magnitude and duration is bound to be a challenge for Surface Operations resource capacity to respond while maintaining the service windows contained within the Council-approved Winter Maintenance Quality Standards, wherein the Transitway and highway networks are the highest priority, followed by the arterials and then the collector network.  In conjunction with adjustments to signal timing, our Winter Maintenance Standards have historically proven to be effective in keeping traffic moving safely on the city’s road network. 

 

In the case of the December 16 storm, with the snow forecast to be heavy in and around the morning rush hour, at the first sign of snow, staff began salting the Transitway and the arterial roadways.  The Transitway and the arterial network had been completely salted once by 4:00 a.m.  Because of the heavy snowfall rate forecast, staff was instructed to utilize the heaviest salt rate available as the rush hour traffic would compromise their ability to completely treat arterials a second time in a timely manner.  At 4:00 a.m., a second salting operation was initiated immediately behind the roadway ploughs.  On the Transitway and arterial streets, roadway ploughs are deployed when a snowfall occurs at such a rate that the action of road salt does not allow vehicle tires to readily penetrate the slushy snow to obtain traction.  The Urban Core Roads Division directed maximum resources as per procedure for a storm of this magnitude, calling in 90 hired and city-owned graders to perform continuous ploughing in tandem with the city’s 42 salt trucks.  Arterials outside the Urban Core area were being serviced before the morning rush hour by another 81 combination salter/plough units.  However, the intensity of the storm caused traffic bottlenecks in the arterial road network during the morning rush hour, impairing our ability to continue to clear major corridors of fresh snow.

 

Bus Operations

 

The most significant delays to transit developed due to specific problems which, while major in themselves, also had the complication that they were interrelated.  Immediately west of the downtown area, buses became stuck on the Gatineau side of the Chaudière Bridge, causing northbound back up of traffic on Booth Street all the way to Scott Street and beyond.  This traffic caused frequent blockages of the Transitway/Booth intersection.  As well, eastbound buses became stuck at the incline at Slater/Bronson, which also caused a back-up on the Transitway through the Booth Street intersection and further west.  Finally, the problems at this intersection were further exacerbated by a single articulated bus which had problems at the Booth/Transitway intersection itself.  With 450 buses scheduled to utilize this section of the Transitway during the morning peak, serious congestion developed quickly. It is also acknowledged that there were many other specific locations, generally involving inclines, which transit vehicles were unable to navigate. Bus traffic gradually began moving as buses were freed from locations that blocked through traffic.  Westbound Transitway service in the same area was subjected to delays and stop-and-go operation due to stuck buses in Bayview Station blocking the roadway.

 

In terms of passenger loading/unloading, difficulties were also experienced as a result of the large windrows left by the ploughing operations.  Although the travelled lanes were cleared, the access to buses from the bus stops and sidewalks was seriously restricted.  Unfortunately, clearing bus stops during or even immediately after a major storm cannot currently be accommodated as all available resources (city and hired/contract) are still clearing snow from the transportation network (roads and sidewalks) as per the Winter Maintenance Quality Standards.

 

On a typical weekday, Transit Operations provides service to 350,000 daily riders using a peak period demand of 765 buses.  Throughout the day, the transit fleet undertakes approximately 1200 daily bus assignments.  A review of the transit operations for December 16 indicates bus operators called the Transit Operations Control Centre 107 times to report that their bus was stuck and that they needed assistance.  Typically for a significant snow event, Transit Operations would experience 10-12 requests for assistance from operators with stuck buses.

 

As previously noted, there were specific bottlenecks which severely affected transit operations.  As well, snow clearing activities could not immediately address some critical areas, resulting in numerous stuck buses.  The main areas of concern were the bus loops and roadways leading to the local platform areas at Blair and Billings Bridge.  Similar problems were encountered at the bus loops and lay-up areas at LeBreton, Hurdman and Orléans stations.  The bus-only off and on ramps east and west bound along the 174 at Montreal Road and Jeanne d’Arc interchanges were also not cleared of snow immediately.

 

Considerable effort to free stuck buses was made by staff in many areas.  Staff in Transit Operations worked with Fleet, RPAM, Surface Operations and towing contractors to free stuck buses.  This involved tow trucks, service trucks, ploughs and sidewalk clearing equipment.  As well, Surface Operations were contacted to direct ploughing and salting operations to areas with specific problems.

 

In response to the roadway conditions and blockages, Transit Operations did re-route buses away from problematic areas, although this was of limited success as buses became stuck on the detour routes or were delayed in traffic congestion.  Services were detoured in several locations, including:

 

In addition to the amount and rate of snowfall, the following factors have been evaluated to determine their impact on the number of buses stuck on December 16.

 

Location

 

An analysis of the location of the stuck buses shows that Transitway roadways observed the largest percent of buses stuck at 45 percent. Rideau Street and Gatineau each had seven percent of the stuck buses.  Other roadways throughout the City of Ottawa accounted for the remainder.

 

 

Location

Number of Stuck Buses

Percent

Transitway

48

45

Rideau Street

7

6.5

Gatineau

7

6.5

Other

45

42

Total

107

100

It is recognized that the statistics do not give an indication within themselves of the specific impacts to overall operations caused by individual blockages.  An example is the serious back ups caused by a few buses stuck immediately north of the Chaudiere Bridge.

 

Type of Bus Stuck

 

Over 80 percent of the stuck buses were sixty foot articulated buses.  This compares to an on-street fleet of articulated buses on December 16 of 22 percent.  It is clear that these buses were more susceptible to becoming stuck in the large amount of snow experienced on December 16 than other bus types.

 

Type                                                                                                                                                       

No. Buses Stuck

% Stuck

No. of  Pull-outs

% of  Pull-outs

40’ Low Floor  Orion VI

3

3

148

13

40’ Low Floor      New Flyer Invero

11

10

131

11

60’ Low Floor      New Flyer  D60LF

88

82

260

22

Other

5

5

628

54

Total

107

100

1167

100


 

Operator Driving Experience

 

An evaluation of the driving experience of the bus operators indicates that 37 percent of the bus operators stuck on December 16 had less than five years of bus-driving experience.  This is consistent with the percentage of operators driving buses on December 16.

 

Years Driving

No. of Opts  Stuck

% of Stuck

% of Opts on duty on Dec. 16

<5

40

37

37

5 to 10

20

19

15

10 to 15

8

7

5

15 to 20

8

7

11

20 to 25

14

13

9

25 to 30

12

11

12

>30

5

5

11

Total

107

100

100

 

Further analysis of the operators that became stuck indicates that 13 were stuck twice during their shift and one operator became stuck three times.  A review of the driving experience for these operators shows that there is no pattern and that the most senior operator that was stuck more than once had thirty years experience and the most junior had less than one year experience.  Of the 14 operators stuck more than once, 12 were driving articulated buses.

It can therefore be concluded that years of driving experience was not a significant factor in this event.

 

Bus Recovery - Towing Operations

 

The City owns two large tow trucks, one stationed at 1500 St. Laurent in the east and the other at the Merivale Garage on Colonnade Road in the west.  A towing contract is also in place with J & E Towing that provides recovery services for the City’s entire fleet of vehicles.  Three of their trucks have been specially set up to recover buses.  As part of this Standing Offer, two other towing companies are available to the City once our efforts have been exhausted with the prime contractor

 

The process for dispatching either City owned or contracted units is that Transit Services control room staff contact the Fleet Services supervisor who provided the service using either the internal resources or contracted resources. However there had been no pre-positioning or early alerting of resources in anticipation of the storm.

 

On December 16, towing operations started before 6:00 a.m. and during the day, contractors recovered 31 vehicles, city-towing vehicles recovered 49 and about 27 were able to recover themselves or received assistance from others.

 

There were three accidents involving buses reported on the day of the storm and 12 more units were identified after the fact as having received minor damage.  Six buses sustained such minor damage that they remained in service.  The total cost of accident repair incurred was about $20,500.  All buses were back in service by early January.

 
Articulated Bus Analysis

 

The articulated bus fleet consists of 227 sixty-foot New Flyer low-floor buses (D60LFs) that employ a “pusher” configuration, with a rear drive axle powered by a rear-mounted engine, with longitudinal stability of the vehicle maintained by an active hydraulic system located below floor level at the articulated joint.

 

This particular design was selected in 2000 for operation in Ottawa for a number of reasons.  The articulated bus provides increased passenger capacity while the flexible joint allows safe transit of City streets, in spite of their increased length.  Additionally, the pusher type of configuration generally allows longer length low-floor sections without steps, while also providing reduced risk of passenger discomfort due to trace exhaust fumes, high noise and vibration levels.  City transit maintenance facilities and equipment are also better suited to propulsion systems that feature rear mounted, upright vertical engines.

 

The articulated fleet has performed satisfactorily for five years, and although there have been isolated cases of unserviceable buses due to winter road conditions, there has been no widespread events comparable to the number of articulated buses immobilized by the December 16, 2005 snow conditions.  Pusher articulated buses also provide satisfactory service in other Canadian jurisdictions, including Mississauga and Edmonton.  As well, an evaluation undertaken in 2004 by the City of Montreal concluded that the model used in Ottawa (one of our buses participated in the evaluation) performed on a par with other articulated configurations in snow conditions. 

 

There are a number of features in the D60LF design to provide an operating envelope that is satisfactory for the range of environmental conditions that normally occur in the City: 

 

1.       A shorter rear section with a pivot point behind the center axle to effectively limit the turning corridor and bend angle required.

2.       An articulated joint design consisting of a ring frame bearing assembly, which connects the front section to the rear and transmits the loading forces, with a hydraulically controlled geared section to provide dampening forces to stabilize the rear section both with the bus travelling on a straight roadway alignment and with the bus in a bend.

3.       A programmable electronic controller (on-board computer) to control the degree of damping that is required at the articulated joint, which is a function of the bend angle, direction of travel, speed and transmission selection, and is re-adjusted continuously.

4.       The actuation of operator warning indicators and control interlocks, if the bend angle exceeds specific limits; e.g. at 44° bend, before the physical stops are encountered at 54º, vehicle brakes and throttle interlocks apply and 100 percent dampening is actuated, if in reverse gear.

5.       A joint-override switch to release the damping and control interlocks for 20-second intervals, if at the maximum bend angle, which allows the bus to be straightened either by driving the bus if tire traction is sufficient, or by towing.

6.       Traction control, which reduced engine torque and uses the Anti-Lock Braking system to control a slipping tire, under accelerating or launch conditions.

7.       For deep mud or snow, an override traction control option to allow continuous rotation of the tires at high throttle.  This feature is intended for travelling short distances over soft surfaces like snow, mud or gravel, where wheel spin is required to provide enough drive traction to move the vehicle, and consequently was not effective in preventing immobilization of many of the articulated buses on December 16.

8.       Relatively heavily weighted rear and center axles to provide adequate traction with the buses empty, which is achieved primarily by the rear mounted engine and the 1,100 kg articulation system located near the center axle.

 

The environmental conditions of December 16 generated extreme road conditions resulting in a significant accumulation of snow and ice on many City roadways.  A vehicle’s ability to brake, steer and accelerate is dependent on the tractive force generated at the tire, an ability which is seriously restricted by snow and ice accumulation.

 

From a transit perspective, the impact of the December 16 storm is best described as a widespread loss-of-traction event, as it significantly affected most buses in the fleet.  Non-articulated 40-foot buses became stuck in the snow, as well as a significant number of articulated buses, at various bend angles, including those that were longitudinally aligned and yet were still unable to generate sufficient traction at the rear tires to move the vehicle. 

 

Intuitively, a pusher articulated bus will have an operational traction limit in a turn that is less than a non-articulated vehicle, under heavy snow-load road conditions, as indicated by the high number of articulated buses adversely affected by the December 16 event.  Increased rolling resistance at the front and centre axles, as well as any resistive snow loading accumulation under the bus, will tend to decrease forward momentum of the bus, as tractive forces at the rear drive wheels generate an increasing pusher force – having a lateral component - at the centre axle tires, as the bend angle increases.  If the lateral forces exceed the resistive traction of the centre axle tires, the centre of the bus will skid laterally across the road surface.  Eventually, the added resistance of the bus being pushed sideways will overcome the tractive force generated by the drive axle and the bus will become immobilized.  As well, under all conditions, the additional tires resulting from the use of a centre axle on an articulated bus adds significantly to the rolling resistance, as compared to a 40-foot bus, which has to be overcome by the rear axle tractive forces.

 

Tires

 

All-season tires are currently used on the City transit fleet.  These tires range from new to retreads and incorporate both square and rounded treads.  A measurement survey of the remaining tire tread on the articulated buses that were immobilized on December 16 showed that tread remaining in all cases was well within specified ranges.

 

A survey of transit tire suppliers (Bridgestone/Firestone, Michelin, and Goodyear) as well as a survey of other Canadian transit operators (Hamilton, Mississauga, Kingston, Gatineau, Montreal, and Quebec City) has revealed that snow tires are not available for transit vehicles in Canada.  There are all-season tires with different traction characteristics from those used in Ottawa that may provide improved grip under some winter conditions.  There is no commonly used pattern or brand used throughout the industry.

 

A marginal improvement in drive traction under heavy snow conditions may be attainable through use of tires from a different manufacturer, although there also may be trade-offs under other winter conditions such as ice.  However, it is very unlikely that any  improvement in adhesion would have made a significant difference given the road conditions that existed on December 16.

 

 

SUMMARY

 

Review of Major Problems – Lessons Learned and Actions Taken

 

Surface Operations

 

At one critical intersection (Booth and the Transitway) where the roadway incline created a significant problem for articulated buses, equipment was redeployed to spread winter grit in addition to the salt applications.  This remedial action appeared to give the articulated bus enough traction to navigate the incline successfully without aid.  As a result, inclines previously identified as trouble spots for articulated transit buses have subsequently and will continue to receive de-icing via the regular salt spreader attending that salt beat as well as additional applications of winter grit to facilitate short-term traction.


Operations procedures have also been enhanced as follows:

 

i)                    Bus loop area clearing procedures have been reviewed and modifications have been implemented to improve the operations;

ii)                   Bus lanes on Montreal Road and Jeanne d’Arc will be prioritized and will be done at the same time as Highway 174;

iii)                 Orléans Station will be completed at the same time as Highway 174.           

 

Bus Operations

 

On the day of the event, Transit Operations originally contacted Surface Operations through the City Call Centre.  Direct communications to the various yards responsible for the snow clearance operations took place after the mid-point of the event.  Since this time, direct lines of communications between Transit Operations Control and Surface Operations have been established.  The Transit Control Centre did not call Ottawa Police Services during the morning.  Although there is close communications with OPS for accident and incident response, the stuck buses did not fall into this category.  This issue will be reviewed to consider how the involvement of the OPS could have assisted with the response to the problems experienced by the transit service during the storm.

 

For weekday rush-hour service about 180 articulated buses are scheduled and these are required for their passenger carrying capacity.  However, at off-peak times, when heavy snowstorms are predicted, it is possible to use standard, instead of articulated, buses on some runs. Off-peak trips tend to be more discretionary and the number of people using transit in a snowstorm on a Saturday or Sunday tends to be lower than would be the case in more clement conditions. Plans are being developed to alter the bus assignments to use more standard buses in these circumstances. Procedures are already in place to ensure that there are standard buses available as extras for heavy storm conditions.

 

Winter driving tips are communicated to bus operators prior to the start of each winter season. However, discussions with on-street supervisory staff assisting with stuck buses indicates that the traction control features of the articulated buses could be better understood by some operating staff.  These features as well as a reminder of procedures in winter storm conditions will be communicated to staff.

 

Fleet

 

There are preventative measures with respect to towing operations that can be taken to minimize the impact of future events of this nature through closer coordination of event anticipation with Surface Operations.

 

The feasibility of introducing program changes to further optimize the degree of hydraulic dampening generated at the articulated joint under heavy snow conditions is currently under investigation with the manufacturer of the articulation system. 

 

Availability of higher traction tires is being pursued with a trial planned for the winter of 2006/07 as directed by Transportation Committee.

 

Task Force

 

While the Department has implemented a number of measures to address issues experienced during the December 16 storm, it is acknowledged that the magnitude of disruption to the transit users on that day underscores that a careful review needs to be undertaken to ensure there is no reoccurrence.

 

Accordingly, a Task Force has been formed to refine the improvements already implemented, to ensure optimal coordination and communications and to develop comprehensive plans/actions.  Membership will include:  Surface Operations, Fleet Services, Transit Services, Traffic and Parking Operations, Infrastructure Services, Real Property and Asset Management and Ottawa Police Services.

 

During its meeting of January 18, 2006, Transportation Committee directed that the Task Force report back by June 2006.

 

Original signed by

 

 

R.G. Hewitt

 

Cc:  Mayor and Members of Council

       Executive Management Team

       Police Chief

       A/Director Surface Operations

       A/Director Transit Services

      A/Director Infrastructure Services

      Director Fleet Services

      Director Traffic and Parking Operations

      Director Real Property and Asset Management

      Coordinator Transportation Committee