and Council / at au conseil
30 March 2011 / le 30 mars 2011
Submitted by/Soumis par : Nancy Schepers, Deputy City Manager/
Directrice municipal adjointe, Infrastructure Services and Community Sustainability/Services d’infrastructure et Viabilité des collectivités
Contact Person/Personne ressource : Wayne Newell, General Manager, Directeur général,
Infrastructure Services / Services d'infrastructure
(613) 580-2424 x16002, Wayne.Newell@ottawa.ca
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Ref N°: ACS2011-ICS-INF-0004 |
That the Transportation Committee recommend that Council:
1. Receive this report for information; and,
2. Direct staff to advance the timing of the proposed implementation schedule of the recommended plan as a result of the Federal Government’s purchase of the Nortel Moodie campus.
Que le Comité des transports recommande ce qui suit au Conseil:
1. De prendre connaissance de ce rapport; et,
2. Charger le personnel d’avancer le calendrier de la mise en œuvre proposée du plan recommandé, par suite de l’acquisition par le gouvernement fédéral du campus Nortel Moodie.
BACKGROUND
In February 2009, the City of Ottawa initiated a planning and design study to identify a Recommended Plan to extend the bus rapid transit (BRT) network (Transitway) from Bayshore Station to west of Moodie Drive. The project was identified as a priority transit investment (Phase 1, Increment 1) in the 2008 Transportation Master Plan (TMP) and is required to address current transit service reliability issues associated with running scheduled bus service in mixed traffic on Highway 417 (the Queensway).
Following Council approval on 08 September 2010 of the Preliminary Recommended Plan, the formal provincial Environmental Assessment (EA) approvals process has been initiated in accordance with the Transit Project Assessment Process (TPAP {O. Reg. 231/08}). In addition, as National Capital Commission (NCC) lands are required, a screening under the Canadian Environmental Assessment Act (CEA Act) has been initiated.
This report outlines the results of requests for funding from both the Federal and Provincial govenments to construct noise attenuation barriers as well as new recommendations regarding the project implementation phasing resulting from the Federal governments’ purchase of the Nortel Moodie campus.
DISCUSSION
Noise Attenuation Barrier Funding Request
The approved Preliminary Recommended Plan (illustrated in Document 1) locates the Transitway on the north side of Highway 417 and is comprised of two 4.0m transitway lanes and two 2.5m paved shoulders. The Transitway is for exclusive transit use and is grade-separated at both Holly Acres Road and Moodie Drive. A transitway station is proposed immediately east of Moodie Drive with local bus access from Corkstown Road. This station is fully integrated with the existing multi-use pathway network and provides OC Transpo with the flexibility to terminate/turn around local and shuttle bus services. A small “kiss-and-ride” facility is also proposed adjacent to the station on Corkstown Road in order to improve community access to rapid transit.
The noise analysis completed in support of this plan concluded that the contribution to environmental noise from the Transitway is expected to range from 0.1 to 0.2 dBA and be indistinguishable from local background traffic noise in the horizon year (2031). On opening day, the contribution of the Transitway would be less than 1 dBA which is significantly below the threshold of human sensitivity to noise level increases. The dominant source of roadway noise is, and will continue to be, Highway 417. In accordance with the City’s Environmental Noise Control Guidelines for Capital Works Projects (Surface Transportation Corridors), this predicted increase does not warrant noise attenuation measures (an increase of 5 dBA, and a total future noise level of > 60 dBA is required to meet the warrant). Therefore, cost for the supply and installation of noise barriers is considered provisional and will require separate Council approval.
However, it is recognized that without noise attenuation measures, the projected growth in highway traffic will result in future noise levels that exceed 60 dBA at a number of receptor locations (this threshold is already exceeded in some areas). Responding to this issue, the Ministry of Transportation (MTO) has identified two sites in the study area as candidates for their Retrofit Noise Barrier Program (extending from Bayshore Station to near the proposed station at Corkstown Road). Recognizing this, the approved West Transitway Extension Preliminary Recommended Plan has been developed so as not to preclude the future installation of these barriers by MTO.
On 8 September 2010, City Council approved the following motion:
Whereas existing noise levels in the 417 corridor from Bayshore to Moodie Drive range to upwards of 63 dBA;
And Whereas the dominant source of roadway noise is and will continue to be Highway 417;
And Whereas the projected growth in highway traffic will result in future noise levels that exceed 60 dBA at a number of receptor locations;
And Whereas the Ministry of Transportation (MTO) has identified areas along the route as candidate sites for their Retrofit Noise Barrier Program;
Therefore be it resolved that Council direct staff to engage the Ministry of Transportation and the National Capital Commission in discussions to implement noise barriers;
That staff be directed to seek funding sources at the Federal, Provincial and Municipal level and report back to the Transit Committee within three months; and
Further to this direction, funding requests were sent to both the NCC and the MTO. Both requests were declined.
Revised Project Phasing
The approved Preliminary Recommended Plan described above represents the ultimate, long-term plan for a fully grade-separated Transitway facility. Policy 5.2.2 (3) of the TMP, however, directs staff to defer the cost of grade-separating rapid transit elements by introducing measures that improve reliability by incrementally introducing enhancements to isolate transit from mixed traffic. In accordance with this direction, the possibility of deferring the construction of grade separations at Holly Acres Road and/or Moodie Drive was analyzed. The analysis concluded that while the grade separation of Holly Acres Road is required in the near term, the construction of three required structures at the Moodie Drive interchange (as well as the Transitway station at Corkstown Road) could be deferred until at least 2021.
Shortly after City Council approved the Preliminary Recommended Plan and associated implementation schedule described above, the Federal Government (PWGSC) announced that it had purchased the Nortel Moodie campus with the intention of moving in approximatly 10,000 employees by 2013 and up to 15,000 by 2031. This rate of employment level growth at the former Nortel site differs significantly from current growth rates and reflects much quicker occupancy levels than those currently identified in the City’s Official Plan (OP) 2031 planning horizon. It is noted that the previous analysis highlighed that the at-grade alternative would not be sufficient to meet the longer term planning horizon (2031) with approximatly 8,000 employees (2031) (see Document 4)
As a result, the proposed implementation schedule for this project is revised as follows:
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Timeframe |
Description of Works |
Estimated Cost |
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Phase 1 |
2011 to 2013 |
· Construct exclusive Transitway from Bayshore Station to just east of the Transitway station at Moodie Drive; · Construct grade separation of Holly Acres Road; · Construct retaining walls, barriers along the highway · Construct the grade separation at Holly Acres Road, including the re-aligned Acres Road/S-W on-ramp · Construct improvements to the existing multi-use pathway and on-road cycling network in the vicinity of Holly Acres Road; and, · Implement environmental mitigation measures. |
$43 M* (note 1) |
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Phase 2 |
2012 to 2014 |
· Construct grade separation of Moodie Drive for westbound Transitway buses. · Construct transit station configuration at Corkstown Road. · Construct improvements to the existing multi-use pathway and on-road cycling network in the vicinity of Moodie Drive |
$33 M |
*Note 1 - The amount budgeted in the 2011 Capital Budget $43 M includes for $8M provisional item for Noise Barriers if directed by City Council (otherwise the Phase 1 cost is $35M)
This project requires 5.5 hectares of MTO land, 1.2 hectares of NCC land, and 0.2 hectares of private property.
Since the interim connection to Moodie Drive is not being constructed in Phase 1, the Transitway cannot be put into service until the completion of Phase 2. The construction of Phase 2 requires approximately 1.2 hectares of NCC Greenbelt land. The NCC is currently undertaking their Greenbelt Master Plan Review and will not be in a position to approve the sale of the requested property until after the review is completed, which is expected sometime in 2012. Phase 2 cannot be constructed until the property is transferred.
Noise Barrier
If Council elects to construct the noise barrier, the approximate cost for a standard noise barrier is $4M for +/- 1500m of noise barriers at the locations identified in the MTO Noise Barrier Retrofit Study, Highway 417, 2008, (extending from Bayshore Station to the east side of the berm and the west side of the berm to near the proposed station at Corkstown Road). Alternatively, the approximate cost for the installation of a standard noise barrier for the full length +/-2,900m is $7.8M.
The MTO has recently completed a Context Sensitive Design Study (CSDS) for the 417 corridor, which aims to increase the aesthetics of structures (overpasses, underpass, noise barriers etc.) in and around the Highway 417 corridor. The NCC’s letter (Document 3) states that a condition for the land use transfer would require the noise barriers to comply with the standards/ recommendations set forth in the CSDS (for example, but not limited to; translucent materials, colour concrete, impressed designs etc.). Further discussions are required with the NCC to further define these costs and requirements. However, it is expected that the premium above the standard noise barrier could be significant.
Subject to further assessment and detailing of the design work, the estimate for the Phase 1 project is $35 million (not including $8M contingency set aside for noise barriers if directed by Council). Phase 2 of the project is estimated to cost an additional $33 million for the grade separation of Moodie Drive (for westbound buses) and the construction of the long-term station at Corkstown Road.
RURAL IMPLICATIONS
Transit services for rural residents who use the Park and Rides in the west end of the City will be improved by the construction of the West Transitway Extension (Bayshore to Moodie).
CONSULTATION
To date, we have held the following focus meetings with the Crystal Beach/Lakeview Community Association (CBLCA) executive:
1. 30 April 2009;
2. 1 September 2009;
3. 2 November 2009;
4. 12 January 2010;
5. 4 February 2010; and
6. 16 June 2010.
Furthermore, we have held three open houses with the general public to discuss this project and elicit feedback. These were held on:
1. 25 June 2009 at Maki House in the Crystal Beach/Lakeview community;
2. Two back-to-back open houses: 22 February 2010 in Kanata at the Mlacak Centre , and 24 February 2010 at Maki House in the Crystal Beach/Lakeview community; and
3. 23 June 2010 at Maki House in the Crystal Beach/Lakeview community.
All Open Houses were advertised city-wide in the Ottawa Citizen, the Le Droit and the City website.
Recognizing that this project impacts many stakeholders, the project team has met on an ongoing basis with the City of Ottawa Advisory Committees and government agencies, such as:
· Ottawa Forests and Greenspace Advisory Committee (OFGAC);
· Roads and Cycling Advisory Committee (RCAC);
· Pedestrian and Transit Advisory Committee (PTAC)
· National Capital Commission (NCC); and
· Ministry of Transportation Ontario (MTO).
Staff are committed to continuing consultation with City Advisory Committees and the public to further study and review pedestrian and cyclist issues as the project moves through the environmental assessment and detail design stages.
Continued consultation will occur as the project moves to satisfy the legislative requirements of the Transit Project Assessment Process (TPAP), (Ontario Regulation 231/08). An additional Open House is expected to be held in spring 2011 prior to the project receiving Environmental Assessment Approval.
With regards to the grade separation at Moodie Drive, feedback from the community has indicated that they are in favour of the grade separation at Moodie Drive.
Councillor Mark Taylor has been briefed on this project.
There are no Legal/Risk Management impediments to implementing this report's recommendation.
The recommendation contained herein aims to support the following Strategic Directions adopted by Council on 11 July 2007:
A1 Improve the City's transportation network to afford ease of mobility, keep pace with growth, reduce congestion and work towards model split targets.
B1 Attain transit goals (30 per cent modal split) by 2021.
E6 Require walking, transit and cycling oriented communities and employment centres.
F4 Ensure that City infrastructure required for new growth is built or improved as needed to serve the growth.
N/A
FINANCIAL IMPLICATIONS
The 2011 draft capital budget included $43 million to extend the West Transitway from Bayshore Station to just east of Moodie Drive.
The project will not proceed without a commitment from our funding partners at the Provincial and Federal levels.
Funding for Phase 2 will be identified for consideration as part of the 2012 Capital Budget.
Document 1: Preliminary Recommended Plan
Document 2: Letter received from MTO dated 5 November 2010
Document 3: Letter received from NCC dated 5 January 2011
Document 4: Revised Growth Projection – Review of Moodie At-Grade Transitway Phasing strategy
Document 5: Initial Council Report - ACS2010-ICS-INF-0012
Following Committee and Council approval, the following activities will be undertaken:
Both Phase 1 and Phase 2 will not to proceed to construction until funding approval has been secured from the Provincial and Federal Governments.