Report to/Rapport au:
Corporate Services
and Economic Development Committee/
Comité des services organisationnels et du
développement économique
and/et
Transportation Committee/
Comité des transport
and
Council/et au Conseil
28 July
2006/le 28 juillet 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/Personne-ressource: A.
Carle, Director/Directeur,
Transit Services/Service du transport en commun
842-3636 ext. 2271, alaine.carle@ottawa.ca
|
City Wide |
Ref
N°: ACS2006-PWS-TRN-0009 |
SUBJECT: BUS
ACQUISITION STRATEGY
OBJET: STRATÉGIE
D’ACQUISITION DES AUTOBUS
REPORT RECOMMENDATIONS
1. That the Corporate Services and Economic Development Committee recommend to Council the approval of the bus acquisition strategy for the next three years as described in this report and, specifically:
a)
The advancement
of $12 million authority from 2007 to allow 24 Invero buses to be added to the
current order of 63 buses to accommodate the implementation of the first stage
of the 2009 service network (hub-and-spoke) in 2007 and to cover the temporary
replacement of the O-Train with bus service;
b)
The
advancement of $800,000 authority from 2007 for the purchase of a pilot
articulated bus;
c)
Approval for the
funding of a double decker bus trial at a cost of $500,000, as described in
this report for the winter of 2006/2007;
d)
The financing of
the report recommendations as detailed in the Financial Implications
section of this report including debt authority of $6.732 million to be
financed from future federal gas tax revenues; and
2. That
the Transportation Committee recommend to Council the approval of the bus
acquisition strategy for the next three years as described in this report and,
specifically:
a) The commencement of the procurement process for the
articulated 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.
RECOMMANDATIONS DU RAPPORT
1. Le Comité des services organisationnels et du développement économique recommandent au Conseil municipal d’approuver la stratégie d’acquisition des autobus pour les trois prochaines années telle que décrite dans le présent rapport et, plus précisément:
a)
Une autorisation de 12 millions de dollars à partir de 2007 afin de
permettre l’ajout de 24 autobus Invero à la commande actuelle de
63 autobus en vue de d’assurer la mise en œuvre de la première étape du
réseau de service 2009 (réseau en étoile) en 2007 et de couvrir le remplacement
temporaire de l’O‑Train par un service d’autobus;
b) Une autorisation de 800 000 dollars à partir de 2007 pour l’achat d’un modèle pilote d’autobus articulé;
c) L’approbation du financement nécessaire à la mise à l’essai d’un autobus à deux étages au coût de 500 000 dollars, comme le précise le présent rapport, et ce, au cours de l’hiver 2006-2007;
d) Le financement de la mise en œuvre des recommandations précisées à
la section Répercussions financières du
présent rapport, ce qui comprend l’autorisation d’emprunt de 6,732 millions
dollars qui sera financée à l’aide des revenus futurs provenant de la taxe
fédérale sur l’essence; et
2. Le
Comité des transports recommande au Conseil municipal d’approuver la stratégie
d’acquisition des autobus pour les trois prochaines années telle que décrite
dans le présent rapport et, plus précisément:
a) Le lancement du processus
d’acquisition pour les autobus articulés avant l’approbation des budgets comme
mesure d’exception aux exigences du Règlement sur les achats en précisant que
le document de la DP comprend une disposition affirmant que tout contrat
accordé dans le cadre de ce processus d’acquisition sera assujetti à
l’approbation d’un financement budgétaire par le Conseil municipal.
BACKGROUND
In the next four years it will be necessary to acquire 343 standard equivalent buses for growth and replacement purposes.
The way in which the transit fleet will be fuelled in the future is currently being examined. Staff recommended a move to diesel/electric hybrid vehicles in a report to Transportation Committee on November 16, 2005. However, before making a decision on this, Council directed that an independent study of the Compressed Natural Gas (CNG) option be undertaken. This study is underway, and it is expected that the results will be presented to Transportation Committee in October.
With the approval by Council in July 2006 of the Light Rail Project, and the closure of the current O-Train line in May 2007, it will be necessary to replace the O-Train with bus service until the opening of the LRT system at the end of 2009.
Council approved the 2009 Transit Service Network in November 2005. This network will require more high-capacity buses in the fleet and these requirements have been taken into account in the revised transit fleet acquisition strategy.
A two-week in-service demonstration of the high-capacity Alexander Dennis double decker bus was carried out in Ottawa in late June and early July.
Timelines for bus acquisition are about two years, or more where there is a need for special infrastructure, as is the case of double decker buses.
DISCUSSION
The requirement for buses over the next few years is defined by:
· Growth – a three percent annual ridership increase is assumed, in accordance with the Transportation Master Plan;
· The need to provide additional capacity through the acquisition of more high-capacity buses to accommodate the 2009 Transit Network Concept;
· The short-term need for additional buses to replace the existing O-Train;
· Bus reductions when the new LRT system is introduced; and,
· The need to replace buses as they come to the end of their useful life.
These requirements lead to the bus acquisition plan shown in Table 1. The strategy recommended in this report would ensure that the required buses will be available for service in the next few years, while keeping options open for technology choices and the choice of high-capacity vehicle.
Table 1
Fleet Requirements and Acquisition as Proposed in Long Range Financial Plan 3
|
|
GROWTH |
REPLACEMENT |
TOTAL ACQUISITION |
||
|
|
Standard Equivalent Buses Required |
Standard Equivalent Buses in LRFP3 (Deliveries) |
Shortfall |
Standard Equivalent Buses |
Standard Equivalent Buses |
|
2007 |
56 |
27 |
29 (1) |
36 |
63 |
|
2008 |
45 |
74 |
0 |
48 |
122 |
|
2009 |
38 |
38 |
0 |
57 |
95 |
|
2010 |
0 |
0 |
0 |
63 |
63 |
|
TOTAL |
139 |
139 |
|
204 |
343 |
(1) This shortfall of 29 buses to meet 2007
requirements is recommended to be addressed by advancing the purchase of 24
buses from 2008 to 2007; see Table 2, below.
Table 2
Recommended
Fleet Acquisition Plan
|
|
GROWTH |
REPLACEMENT |
RECOMMENDED ACQUISITION |
||
|
|
Standard Equivalent Buses Required |
Standard Equivalent Buses in LRFP3 (Deliveries) |
Shortfall |
Standard Equivalent Buses |
Bus type and quantity |
|
2007 |
56 |
51 |
5 |
36 |
87 40-foot buses |
|
2008 |
45 |
50 |
0 |
48 |
65 articulated buses |
|
2009 |
38 |
38 |
0 |
57 |
63 high-capacity buses (1) |
|
2010 |
0 |
0 |
0 |
63 |
63 40-foot buses |
|
TOTAL |
139 |
139 |
0 |
204 |
278 buses (2) |
(1)
To be
determined whether articulated buses or double decker buses based on winter
study of double decker buses and assessment of infrastructure requirements.
(2) Equivalent capacity to 343 standard buses.
The recommended strategy is to:
· Take immediate action to increase the order of Invero buses due for delivery in 2007 from 63 to 87;
· Engage in a winter trial of the Alexander Dennis double decker bus;
· To continue to procure clean diesel buses until the propulsion system studies are completed; and,
· Immediately embark on the procurement process for clean diesel articulated buses for delivery in 2008, with options for hybrid diesel/electric or CNG models.
Were the direction to be given to purchase double decker buses in place of articulated buses, it would not be possible to have these buses in service any earlier than 2009 because of their specific infrastructure requirements. In the intervening years, many more 40-foot buses would thus be required, and these would require more FTEs to operate. The increased operating cost would continue for several years until there was an opportunity to replace their capacity with double decker buses.
Each of the reasons for bus growth is discussed below.
Additional
Buses for Growth
The Official Plan relies on an increase in the peak period transit modal share from 17 percent today to 30 percent by 2021. This will require growth of three to five percent each year in transit ridership. In the next few years, growth of three percent has been assumed, requiring that an additional 139 standard-equivalent buses be added to the fleet from 2007 to 2010.
Growth in ridership so far this year has been three percent and with the price of gas increasing rapidly, it is expected that this will be sustained. As the construction work for the light rail system begins in downtown Ottawa next spring, the City will be introducing an aggressive Transportation Demand Management program to ensure that as many people as possible take transit rather than a car to access the core. This is expected to have a strong impact on ridership for which capacity must be provided. The recently announced Federal transit tax credit program should also have a positive impact on transit ridership.
Bus
Requirements for the 2009 Transit Network Concept
In 2005, as part of the discussion of how transit service can be adequately accommodated on Albert and Slater Streets in the coming years, a new network concept was developed and approved by Council in November 2005.
The restructured network will reduce the numbers of buses and reduce bus travel times on Albert and Slater Streets, which will keep buses and light rail trains operating smoothly. With fewer, more frequent routes operating through the central area, waiting times at bus stops on Albert and Slater Streets will be reduced and therefore crowding and congestion at the stops will be reduced.
The main elements of the
concept are to:
The plan will be implemented in the next few years with public consultation through the Transplan process. It calls for additional fleet capacity over and above the normal growth requirement in advance of the opening of the light rail system in 2009. In each of the next four years, this plan requires the addition of 12 standard equivalent buses, to be provided by acquiring high-capacity buses, rather than standard 40-foot buses, as replacement buses.
The O-Train Replacement Bus Service
When the existing O-Train is discontinued in May 2007, there will be a need to replace this service with a new bus route. The preliminary plans show that 12 buses will be required in the fleet to provide this service, which will be needed until the new LRT is in place.
Bus
Reductions when the LRT is Implemented
When the LRT is implemented, transit services will be restructured within the area of influence of the new service. The new capacity provided by the LRT system will permit the reduction of some bus services and it is anticipated that it will be possible to remove approximately 42 standard-equivalent buses from service. This reduction in bus requirements has been taken into account in the fleet acquisition plan.
Bus
Replacements
As part of normal business, Fleet Services replaces buses at the end of their useful life. This is done in such a way as to minimize the life-cycle costs of the transit fleet. Over the next four years 204 standard buses will need to be replaced as they reach their 19-year in service. In 2008 and 2009, it is planned to replace these with high-capacity buses to achieve the fleet mix required for the 2009 Transit Network Plan.
Timing and Technology Issues
Buses for Service in 2007
From Table 1 it can be seen that ideally 56 buses would be added to the fleet for growth in 2007. In fact, only 27 Invero buses are currently on order for growth but it has been confirmed by New Flyer Industries that, if a firm order were placed before the end of August, 24 additional buses could be delivered next year. This would leave a shortfall of five buses until 2008, which would be managed by extending the life of some buses that should really be retired.
Buses for
Service in 2008
For high-capacity buses to be delivered in 2008 the only realistic option is to buy articulated buses. The timelines for the procurement are already tight and an RFP would need to be developed as soon as possible to ensure 2008 deliveries. It is recommended that, because the Authority is not yet in place to purchase these buses, the Purchasing By‑Law be waived so that the procurement process can be started straight away.
It is also recommended that authority of $800,000 be advanced from 2007 for the purchase of a pilot articulated bus. This would allow the pilot bus to be ordered in late November for delivery in April 2007, which would ensure that 2008 deliveries could be received ahead of September, when service expansion occurs.
Funds for the purchase of the rest of the vehicles for delivery in 2008 would be included in the 2007 Budget. The RFP would be for clean diesel buses, with options for hybrid diesel/electric or CNG models so that a full evaluation could be provided to Council before decisions about future bus purchases were made.
Buses for Service in 2009 and Beyond
The CNG fuel study is ongoing and the results may influence fleet acquisitions. If the study showed that CNG would be the best solution for the Ottawa transit fleet, the infrastructure requirements would mean that OC Transpo could not receive deliveries of CNG buses until facility modifications were complete. The proposed fleet acquisition strategy would not delay the introduction of this technology should the study results support this direction.
The double decker bus demonstration was highly successful. It was well liked by both customers and
operators. A report on this is included
as Attachment 1. With 84 seats, this
bus has significant potential for longer distance commuter routes. However, there are many technical and
operational questions to be answered and so it is proposed to have a winter
trial in Ottawa this winter season.
Negotiations are taking place with the manufacturer, Alexander Dennis,
to see if two or three buses could be made available. The trial would identify
weaknesses, and possible solutions, to difficulties and risks to operations in
the Ottawa winter environment.
Anticipated cost of $500,000 would arise from work to be done by the
National Research Council of Canada on the trial
Were the winter demonstration to be successful, it would be possible to enter into negotiations with Alexander Dennis for buses to be delivered no sooner than 2009.
If either CNG buses or double decker buses were to be purchased, there would be a need for infrastructure changes, for example to garages. The cost and time to make any such changes would be part of the assessment of the vehicles, and any appropriate recommendations would be made as part of a report at that time.
CONSULTATION/PUBLIC
NOTIFICATION
The staged implementation of the 2009 Service Network will take place through the Transplan public consultation process. Extensive consultation will take place with the affected communities and their councillors, as well as the Pedestrian and Transit Advisory Committee as the details of implementation are developed.
The Pedestrian and Transit Advisory Committee (PTAC) and Accessibility Advisory Committee were given the opportunity to ride the double decker bus and a memorandum of support for the winter trial has been received from PTAC.
TRANSPORTATION
MASTER PLAN
The growth target of three percent annually is consistent with the Transportation Master Plan objective of increasing transit’s peak period modal share from 17 percent to 30 percent by 2021.
FINANCIAL
IMPLICATIONS
The Bus Additions project as presented in the 2006 capital budget identified a requirement for $26.6 million in 2007 to address ridership growth projections. The funding for a double decker bus trial in the winter of 2006-07 was not identified in the 2006 budget. If approved, the request to advance $12.8 million spending authority from 2007 to fund the 24 Invero buses and the articulated bus along with the request to conduct a double decker bus trial for $0.5 million is recommended to be funded as follows:
|
|
24 Invero Buses Acquisition |
1 Articulated Bus Acquisition |
Double Decker Bus Trial |
|
|
$ million |
$ million |
$ million |
|
Provincial revenues |
3.960 |
0.265 |
- |
|
Development charges |
1.728 |
0.115 |
- |
|
Federal gas tax debt |
6.312 |
0.420 |
- |
|
Transit Capital Reserve Fund |
- |
- |
0.500 |
|
Total |
12.000 |
0.800 |
0.500 |
Approval of the report recommendations to fund these bus acquisitions in advance of 2007 budget deliberations has the effect of reducing the departmental funding envelope available for the 2007 capital budget.
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 #5 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.
SUPPORTING
DOCUMENTATION
Attachment 1 - Double Decker Bus Demonstration Survey Results
DISPOSITION
Following Council approval, staff will confirm the additional bus order for delivery in 2007 with New Flyer Industries, proceed to develop a plan for a winter trial of double decker buses, and commence the development of an RFP for articulated buses.
ATTACHMENT 1
Exhibit
1
|
|
Rating (% of All Responses) |
||||||
|
Feature |
1 (Poor) |
2 |
3 |
4 |
5 (Good) |
No Response |
Total % |
|
Comfort: Seats |
1.1 |
1.8 |
7.9 |
36.8 |
51.2 |
1.3 |
100 |
|
Comfort: Leg room |
2.6 |
6.1 |
16.2 |
30.4 |
40.7 |
3.9 |
100 |
|
Comfort when standing |
2.8 |
6.8 |
20.6 |
21.4 |
15.5 |
32.8 |
100 |
|
Comfort of ride |
0.9 |
1.3 |
8.8 |
41.8 |
42.0 |
5.3 |
100 |
|
Interior layout |
1.1 |
2.4 |
8.1 |
35.2 |
49.5 |
3.7 |
100 |
|
Second level |
0.2 |
0.9 |
5.5 |
26.0 |
45.5 |
21.9 |
100 |
|
Stairs to second level |
0.7 |
2.2 |
13.6 |
32.2 |
34.4 |
17.1 |
100 |
|
Sense of safety |
0.4 |
1.5 |
15.3 |
38.9 |
37.9 |
5.9 |
100 |
|
Number of seats |
0.7 |
1.3 |
6.6 |
28.7 |
58.0 |
4.8 |
100 |
|
Ease of passenger circulation |
0.9 |
2.6 |
15.5 |
42.9 |
29.5 |
8.5 |
100 |
|
Hand rails and grab rails |
1.5 |
3.9 |
14.2 |
40.9 |
33.5 |
5.9 |
100 |
|
View of outside |
0.4 |
0.0 |
3.5 |
14.7 |
79.4 |
2.0 |
100 |
|
Ease getting on the bus |
0.0 |
0.7 |
3.3 |
29.1 |
65.0 |
2.0 |
100 |
|
Ease getting off the bus |
0.7 |
1.5 |
8.3 |
26.9 |
46.9 |
16.2 |
100 |
|
Accessibility features |
0.2 |
2.0 |
10.7 |
33.9 |
35.0 |
18.2 |
100 |
Exhibit
2
What Feature of the Bus Do You Like the Best
|
Feature |
Frequency |
Percent |
|
View |
99 |
21.7 |
|
Seating capacity |
67 |
14.7 |
|
Second level |
54 |
11.8 |
|
Spacious |
43 |
9.4 |
|
Air conditioning |
42 |
9.2 |
|
Smooth ride |
29 |
6.3 |
|
Seats |
27 |
5.9 |
|
Very accessible for wheelchairs |
5 |
1.1 |
|
Rear doors are wide |
4 |
0.9 |
|
Lighting |
3 |
0.7 |
|
No response |
84 |
18.4 |
|
Total |
457 |
100.0 |
Exhibit
3
What Feature of the Bus Do You Like the Least
|
Feature |
Frequency |
Percent |
|
Not enough head room |
54 |
11.8 |
|
Bus slower and longer at stops |
30 |
6.6 |
|
Ride bumpy-rocky |
24 |
5.3 |
|
Decor |
21 |
4.6 |
|
Not enough leg room |
20 |
4.4 |
|
Facing seats |
18 |
3.9 |
|
Hard to get off of the bus |
14 |
3.1 |
|
Narrow stairs |
13 |
2.8 |
|
Lack of grab straps |
11 |
2.4 |
|
Seats too close |
8 |
1.8 |
|
Need more stop request buttons |
8 |
1.8 |
|
Not safe walk up the stairs-moving bus |
8 |
1.8 |
|
Front route sign not very visible |
5 |
1.1 |
|
Seats uncomfortable |
3 |
0.7 |
|
Stairs could be blocked-when crowded |
3 |
0.7 |
|
Second level too high feels unsafe |
3 |
0.7 |
|
Narrow aisles |
3 |
0.7 |
|
No response |
211 |
46.2 |
|
Total |
457 |
100.0 |
Exhibit
4a
Do You Think the Double Decker Bus Is Suitable for Ottawa
|
Feature |
Frequency |
Percent |
|
Yes |
401 |
87.7 |
|
No |
24 |
5.3 |
|
No response |
32 |
7.0 |
|
Total |
457 |
100.0 |
Exhibit
4b
Why is the Bus Not Suitable
|
Feature |
Frequency |
Percent |
|
Not proven in winter driving conditions |
17 |
3.7 |
|
No need for this type of bus |
6 |
1.3 |
|
Not suitable for express bus |
2 |
0.4 |
|
Not safe |
1 |
0.2 |
|
No response |
431 |
94.3 |
|
Total |
457 |
100.0 |
Exhibit
5
Other Comments from Passengers
|
Feature |
Frequency |
Percent |
|
Great idea |
113 |
24.7 |
|
Not proven in winter driving conditions |
39 |
8.5 |
|
Unique-need time to get used to |
25 |
5.5 |
|
Not designed for taller persons |
18 |
3.9 |
|
Improves efficiency of bus system |
15 |
3.3 |
|
Very quiet-smooth ride |
13 |
2.8 |
|
Reserve second level for long distance passengers |
10 |
2.2 |
|
Need priority seating |
8 |
1.8 |
|
Ride bumpy-rocky |
2 |
0.4 |
|
No response |
214 |
46.8 |
|
Total |
457 |
100.0 |